IRRIGATION SYSTEMS MANAGEMENT PRO1ECT DESIGN REPORT, SRI LANKA
Submitted to United States Agency for International Development: Mission to Sri Lanka
and
Ministry of Lands and Land Development Government of Sri Lanka
Prepared by
Gaylord V. Skogerboe, Team Leader Utah State University (irrigation operations and maintenance engineer)
Jeffrey D. Brewer F. Bruce Brown Cornell UnIversity Harza Enginoering Company (social scientist) (financial analyst)
Alan C. Early Richard J. McConnen Colorado State University Montana State Un1versity (water management specialist) (agricultural economist)
Editors: Darlene Fowler and Cheryl Henderson
Water Management Synthesis Project University Services Center Colorado State University Fort Coilins, 00 80523
in cooperation with the Consortium for International Development
December 1984
/ We would like to acknowledge Mary Llndburg and Sandy Wunchp whose skills greatly helped to speed production of this report.
ii IRRIGATION SYSTEMS MANAGEMENT PROJECT
TABLE OF CONTENTS
Section Ig
Table of C n e t ...... , , l List of Tables ...... ,...... vi List of Figures ...... ix Executive Summary ...... ,6**...... xi
I. Project Rationale ...... I
II. Project Description ...... 5
A. Emphasizing Irrigation Management...... 5 B. Project O t...... 6 C. Status of the End of the Project...... ,,...... 8 D. Project Elements ...... O 10
III. Financial Plan and Analysis...... 37
A. Financial Plhn...... 37 B. Financial Analysis ...... , .... 37
IV. Implementation Pian...... 0...... 45 A. Implementation Schedule ...... oo...... o..... 45 B. Pro-Project Activities ....,...... 45 C. Project Activ...... 58
V. Procurement Plan...... 61
A. Procuremont Responsibilities, ...... 61 B. Commodity List...... 61 C. Source of Procurenents...... 62 D. Method of Procurmept...... o...... 65 E. Payment ...... 66 F o Del ivery ...... o...... 67 G. Marking ...... 67 Ho Receipt and Utilization...... 67 I. Procurement Schedue...... 67
VI. Techrical Ana ysis ...... 69
A. Choice of Sites...... 71 B. Farmers' Organizations...... 72 C. Operations andaintenance...... 78
iii Table of Contents (continued)
D. Financimi1 Management ...... 60449466600 83 E. M*onitoving, Evaluation and Feedback Capability
F. Training Enhancement ...... e 90 G. Research ...... c...... 94 4... H. Equipment and Facilities...e...... 95 I. Technical Assistance ...... 96
VII. Economic Analysis gg...... 101
A. Summary Conclusions ...... e ...... e... 101 B. Economic Analysis of Increased Productivity on Project Sites.c.... ee...... 102 C. Intangible Benefits...... 121
VIII., Social Soundness Analysis...... 125
A. Introdu-tion ...... g...... 125 B. 1e Population of the Scheme...... s . 125 C. Distribution of Bnefts...... 129 D. Participation byOfficers...... 130 E. Farmer Participation ...... 132 F. Impact on Domestic Water Supplias ...... 133 G. Impact on Women ..... , ...... 134 H. The Long Range Impact: Participatory Development.... 134
IX. Administrative Analysis, .. e...... gee..co...... 137
A. Introduction ...... 137 B, ISM Project Administration ...... ,..o .... 138
X. Technical Assistance Reference...... 151
A. Introduction ...... 151 B. Scope of Work for Consultant Team ...... C.... 151 C. Estimated Level of Effort ...... 153 D. Logistic Support andCost ...... 155 E. Implementation Plan for Irrigation Systems Management Project...... c...... 157
XI. Glossary ...... ge..e...... 159
A Acronyms...... , ...... g. .... 159 B. Ters . , ...... , .... . 159
iv Table of Contents (continued) Section
XII. Annexes A. Programme for Integrated Management of Major Irrigation Schemes (INMAS) B Improving Irrigation Management Through Farmer Organization C. Project Cost Estimates D. Representative Farm Budget and Production Inputs E. Action Plan for Training Development and Improvement F. Rcsearch Guidelines: Applied and Policy Issues to Support the ISM Project G. Logical Framework H. Long-Term Irrigation System Investigations: Polonnaruwa District I. Operations and Maintenance Learning Process J. Monitoring, Evaluation and Feedback Systems: Tools for Improved Project Management and Irrigation System Management K. Daily Schedule of ISM Project Design Team L. Determining the Impact of Alternative Incentives on O&M and Water Use
V LIST OF TABLES
Table
1. Summary of operations and maintenance outputs ...... 12
2. Summary of monitoring, evaluation and feedback outputs for the Irrigation Management Division and the Irrigation Department...... • ...... 15i.. 3. Summary of monitoring, evaluation and feedback inputs from the ISM Project to the Irrigation Management Division and the Irrigation Department...... 16 4. Training summary of courses to be conducted annually within the Ministry of Lands and Land Development...... 17
5. Training summary of courses conducted annually on contract.. 19
6. Project 23...... 23
7. Summary of project activities...... 36 8. Summary cost estimate and financial plan ...... 38
9. Percent expenditure of ISM Project funds by year ...... 39
10. Summary budget for three-acre farm...... 40
11. Annual budgets for the MLLD and the Irrigation Department from 1982 to 1984 (millions of Rs.)...... 41 12. Major irrigation projects in the 1984 Irrigation Department budget...... 42 13. 1985 budget requests by the MLLD, the ID, and the IMD (millions of Rs.) ...... 43
14. Pre-project activities ...... 46
15. ISM Project activities ...... o...... 0..00.... 48
16. Summary of commodity costs by coponent...... 62
17. Procurement List ... 00...0...... 0.0...0.00.0 ...... 063
vi List of Tables (continued) Table
18. Suggested fielding schedule for IOs (excluding Gal Oya Left Ba nk)...... 0a0000000...... a0a0a06aa ...... 7 7
19. Irrigation scheme and program performance indicators...... ,* 89
20. Technical assistance team members and their time commitment. 97
21. Base acreage for four schemes at Polonnaruwa ...... 104
22. Acreage, yield and production of paddy for Parakrama Samudra, Minneriya, Giritale, and Kaudulla fnr the base proj ect...... * a a ... e a * e e e* a * *a.a a a e . *. 105
23. Paddy production in Polonnaruwa without ISM Project...... 106
24. Paddy production in Polonnaruwa M= ISM Project ...... 107
25. Impact of the ISM Project on paddy production and gross benefits Polonnaruwa ...... 109 26. Polonnaruwa capital and non-capital ISM Project Costs ...... 110
27. Added economic value of paddy production cost...... °...... 111
28. Incremental net benefits of the ISM Project...... 112
29. Paddy production in Gal Oya Right Bank without ISM Project.. 114
30. Paddy production in Gal Oya Right Bank X.1h ISM Project ..... 115
31. Impact of the LSM Project on paddy production and gross benefit# Gal Oya Right Bank ...... 116
32. Gal Oya Right Bank capital and non-capital project costs on the ISM Project ...... 117
33. Added economic value of paddy production cost, Gal Oya Right Bank ...... 118
34. Incremental net benefits of the ISM Project, Gal Oya Right Bank ...... 119
35. Schedule of ISM Project costs ...... 120
36. Increased yields to meet selected opportunity costs of capital ...... v...... 121
vii List of Tables (continued) TablE
37. Population of irrigation schemes...... 126
38. Ethnic ommunities ...... 128
39. Median monthly incomes byzones...... 129
40. IMD additional staffing required ...... 143
41. Irrigation Department field organization...... 145 42. Irrigation Department additional required staff ...... 147
43. Long-term technical assistance ...... 149
44. Estimated level of effort for long-term consultants ...... 154
45. Estimated level of effort for short-term consultants..... 155 46. Technical assistance requirements in person-month ...... 157
viii LIST OF FIGURES
Figure 1. Irrigation Systems Management Project sites in Sri Lanka .... 24
2. The Gal Oya Irrigation Project in southeastern Sri Lanka .... 25 3. The four tank irrigation schemes in the Polonnaruwa District in central Sri Lanka ...... 27 4. The Minneriya Tank Irrigation Scheme including Gal Amuna in Polonnaruwa District, Sri Lanka ...... 28
5. The Givitale Tank Irrigation Scheme in Polonnaruwa District, Sri Lanka ...... 29
6. The Parakrama Samudra Scheme in Polonnaruwa District, Sri Lanka ...... 30
7. The Kaudulla Tank Irrigation Scheme in Polonnaruwa District, Sri Lanka...... 31
8. The Ridi Bendi Ela Scheme in Kururegala District, Sri Lanka. 34
9. The Hakwatuna Oya Irrigation Scheme In Kurunegala District, Sri Lanka...... 35
10. Relationships among ISM components ...... 70 11. Irrigation System Management Project design ...... 73
12. A physical process for irrigation system O&M...... 79 13. Irrigation scheme operational management ...... 88
14. Data collection and analysis summary and aggregation ...... 91 15. Irrigation Systems Management Project organization ...... 139
16. Cost estimates for housing, education and per dtem ...... 156
ix EXECUTIVE SUMMARY
The Irrigation Systems Management Project (ISM Project) is designed to carry out the second phase of the water management improvement program begun in Sri Lanka in 1979 with USAID's Water Management Project. The ISM Project will work with the newly estab lished Irrigation Management Division in the Ministry of Lands and Land Development, the Irrigation Department, and other departments and agencies to achieve the Government of Sri Lankats goal of improving agricultural production.
Protect Goal and Objectives
The goals of the ISM Project are to expand food production# increase employment opportunities, and raise the standard of living for farmers with small landholdings. The degree to which the Irrigation Systems Management Project achieves this goal will be measured by intensively sampling crop yields and farm incomes at the ISM Project sites. In generalo this project should develop a national institu tional capability for increasing food producto, on existing irrigated land. Specifically, the Irrigation System Management Project should develop the necessary infrastructure to support the perpetual renewal of irrigation schemes In Sri Lanka and improved responsiveness to agricultural needs to sustain continued increases in agricultural productivity.
The major objectives of the Irrigation System Management Project are: edevelop and strengthen farmers' organizations (water users, associations) to help operate and maintain the irrigation systems;
*enhance the capability of Irrigation Department staff in the Ministry of Lands and Land Development for oparation and maintenance (O&M); esupport the program for Integrated Management of Major Irrigation Schemes under the irrigation Management Division (IMD); institutionalize the training capabilities that support farmers' organizations and that improve O&M and project management; and
xi edocument the lessons learned to apply to other irrigation schemes in Sri Lanka and Asia, with special reference to the policy implications to consider in order to ease the transfer of technology. Proiect Sites
The Irrigation System Management Project is designed as a learning process for making water distribution within irrigation schemes reliable and equitable. Institution-building will occur nationally and within selected district and irrigation schemes. The selected project sites are Gal Oya Left and Right Bank Canals in Amparai District; Parakrama Samudra, Giritale, Minneriya, and Kaudulla in Polonnaruwa District; and Ridi Bendi Ela and Hakwatuna Oya in Kurunegala District. Some photographs taken during site visits fol 1ow.
Major Thresholds in the Implementation Schedule
The pre-project activities extend from July 1, 1984 to the consequent loan/grant authorization, estimated to occur by September 1, 1985. The project agreement would be signed by October 1, 1985. The conditions precedent are expected to be met by December 15, 1985, and expeditious effort could allow the equipment and technical assis tance contracts to be negotiated by March 15, 1986 so that initial consultants arrive by May 15, 1986, and needed equipment can be installed during the following month.
Subsequent thresholds are marked by initiating or completing various activities directly tied to the project components, which are operations and maintenance; monitoring, evaluation and feedback; farmers' organization; financial management; training to support the above four elements; and research on applied and policy issues.
In the 11th and 12th months of the annual cycle, an annual report will be prepared that reviews progress and the project accomplishments. At the same time, the workplan will be prepared for the subsequent year, submitted for approva' (as amended), and then implemented. The schedule calls for major mid-projict and end-of project reviews and evaluation of project performance relative to targets established In advance.
Highlights of the Procurement Plan
Small construction equipment will be purchased to improve essential structures and tc do priority maintenance on the four tank irrigation schemes in Polonnaruwa District. Construction equipment purchased under the Water Management Project will be used to rehabilitate the Gal Oya Right Bank Canal system.
xii Micro-computer at Pragmatic rehabilitation operations center on Left Bank Canal system cam
Right Bank Canal Canal without rehabilitation
GAL OYA IRRIGATION PROJECT
xiii Main canal Repair of eroded canal bank
Drop structure Field channel
POLONNARUWA DISTRICT TANK IRRIGATION
xiv The Ridi Bendi Ela main Land of a pur village at canal below the sluice Ridi Bendi Ela
Main hydraulic structure Field channel nooding at Hakwatuna Oya Improvement at Hakwatuna Oya
RIDI BENDI ELA AND HAKWATUNA OYA IRRIGATION SCHEFES
xv The ISM Project strongly emphasizes the use of micro-computers for operations and maintenance, financial management, and monitoring, evaluation and feedback. In addition, radio communications equipment will be purchased for operating the irrigation schemes.
The total estimated cost of the ISM Project is $29.5 million, with AID contributing $19.9 million and the Government of Sri Lanka (GSL) contributing the equivalent of $9.6 million. AID will con tribute a $12.5 million loan and $7.4 million grant. Foreign exchange would total $11.7 million while local currency would amount to $17.8 million.
A large portion ($1.2 million) of the proposed budget for GSL personnel is to increase the size of the O&M staff at the Gal Oya Irrigation Project. The contract GSL personnel are institutional organizers (10's) who assist in creating farmers' organizations. Their salaries will be paid through a cost-sharing arrangement to be negotiated.
The AID grant will primarily finance the services of long- and short-term consultants who will provide technical assistance and for research and/or study. The AID loan will finance commodities, over seas training, GSL contract personnel, and construction with 60% of the construction costs reimbursable to the GSL.
Preliect Activities (Technical Analysis Summary) The Gal Oya Left Bank Canal system has the highest priority because pragmatic rehabilitation will be completed during calendar year 1985 (which corresponds with the Sri Lanka fiscal year) under the Water Management Project. By the start of the Irrigation Systems Management Project (January 1986), farmers' organizations will exist on most Field channels. Also, some distributary-channel farmer organizations will have been created. The ISM Project will complete the job of organizing farmers on all field channels and attempt to create farmers' organizations on all of the jistributaries.
The Water Management Project will develop an operations plan using computerized, weekly, water-delivery schedules, and the ISM Project will bring this capability up to daily scl-duling of water deliveries. Project funds will be used to provide an adequate staff for O&M and to maintain the main and branch channels as part of a preventive maintenance plan, while O&M fees and farmers' labor will be used to maintain distributary and field channels. Improved financial management practices will be undertaken, and the capability for monitoring, evaluating and providing feedback will be further strengthened. Training and research will continue.
xvi The Gal Oya Right Bank Canal system was selected as a site because: it is a part of the same system as the Gal Oya Left Bank Canal, which the Senanyake Samudra Reservoir largely controls; the available irrigation water supplies are inadequate most years, which makes improved irrigation water management particularly important; and about 4,000 acres of land in the lower portions of the system no longer receive irrigation water because of deteriorating irrigation channels and inadequate irrigation water management on the 10,000 acres cultivated by the Sri Lanka Sugar Corporation. Project funds would be used for pragmatic rehabilitation similar to the work being completed on the Gal Oya Left Bank Canal system. In fact, the con struction equipment purchased through the Water Management Project can be used for structurally repairing the Right Bank irrigation channels. The process for undertaking O&M activities, as well as other ISM Project activities, would be the same as described below for the four tank irrigation schemes in the Polonnaruwa District.
A major thrust for the ISM Project is to use fewer capital expenditures than with pragmatic rehabilitation, but to invest more in human resources to structurally upgrade the irrigation channels in the four tank-irrigation schemes near Polonnaruwa; and then to maintain the channels (rather than allowing them to deteriorate again) and operate the system so that farmers' organizations receive a timely, equitable share of the available water supplies.
To accomplish these objectives considerable emphasis must be placed on monitoring, evaluation and feedback to understand and be sensitive to the internal workings of each irrigation scheme; training to enhance professional capabilities is required and research is needed to improve and transfer the process to other irrigation projects. To sustain an irrigation network that can equitably dis tribute water, financial management must improve so that account ability for adequate operations and maintenance is assured, a strong emphasis must be placed on organizing farmers for operations and maintenance, and the farmers' organizations must be strengthened so farmers can improve their irrigation water management to diversify and intensify their crop production.
The Ridi Bendi Ela Tank Irrigation Scheme, which serves 6,500 acres, was selected to test a lower level of irrigation system improvement. This site, located in Kurunegala District, was purpose fully chosen because it lies outside of Polonnaruwa and Amparal Districts where higher levels of improvement are proposed. At Ridi Bendi Ela, project funds would not provide for structurally repairing irrigation channels but would be available for all other ISM Project activities including farmers t organizations; financial management; monitoring, evaluation and feedback; training; and research.
xvii At the Hakwatuna Oya Tank Irrigation Scheme in Kurunegala District, which serves 5,500 acres, only research to study the Impact of the Integrated Management of Major Irrigation Schemes program is to be funded, the lowest level of Improvemant under consideration.
Results of the Economic Analysia
The economic analysis of increasing crop production indicates that the ISM Project will generate enough net berefits +o justify the work done on each site. However, the most important benefit from the ISM Project is to develop more knowledge about the internal, physical irrigation system so that improved management practices can equitably distribute water and increase total farm income; but more importantly, provide equity in farm incomes. The project also shoLId establish more cost-effective and affordable methods of improviag irrigation schemes. Combining lower capital expenditures and improving ranage ment will cost less than a cycle of rehabilitation and deterioration. Also, the irrigation facilities are much more likely to be maintained afterwards.
Results of the Social Soundness Analysis
The Project will innediately benefit the 55,000 farm families in the eight target schemes who should earn more income through increased production. Since the Project will improve water availability in the tail areas of the eight systems more than In the head areas, the Project should improve income equity throughout the schemes.
A problem exists. In Gal Oya Right Bank, the Sri Lanka Sugar Corporation can control water use and availability be'ow their plantation. To prevent the Sugar Corporation from garnering most of the benefits of this project, the Sugar Corporation should sign an agreement concerning their rights and duties toward irrigation water in the system.
Participants in the Project include government officers and farmers. As experience in Gal Oya Left Bank shows, farmers will participate if reliability ind water supplies improve, and if Irrigation Department officers respond positively to farmers' problems. The problem of overlapping functions between farmer repre sentatives and ygl vidanes will be overcome through some changes brought about by the Commissioner of Agrarian Services. Other problems found in the Gal Oya Left Bank can be overcome with proper planning and training.
The Project should positively affect women, but will have an uncertain impact on domestic water supplies. Increased income spent on goods and services will spread the benefits of the Project, as
xviii better irrigation management will spread benefits throughout the government. Results of the AdministratIve Analysis
The Ministry of Lands and Land Development (MLLD), responsible for major Irrigation sch3mes outside of Mahaweli, will implement the Project. A project coordinating committee, chaired by the Secretary of the MLLD will oversee the Project. A project director who reports to the Secretary of the MLLD will lead the Project. Four project deputy-directors, one for each of the four major management efforts: farmer organization, finanicial management, monitoring and evaluation, and O&M will assist the director. The first three of these functions will be the responsibility of the !rrigation Management Division and the last the responsibility of the Irrigation Department. Responsible officers will be assigned within the districts and at the individual schemes.
The Trrigation Management Division began operating In April 1984 with seven officers and ten support staff in Colombo and a project manager for each irrigation scheme. The IMD is not fully staffed yet. The IMD has four major responsibilities: managing the Integrated Managemnent of Major Irrigation Schemes progra.,r overseeing O&M fee collection, managing the Major Irrigation Rehabilitation Project funded by the World BanK, and fiiplemert.tion of the ISM Project. For the ISM Project, the It'D must recruit a large number of new staff including another deputy director, 14 staff in Colombo, 8 district staff, and 72 schemIe staff, plus a large number of short-term institutional organizers. The IMD's organization and functions are still evolving and need clarifying. This Project will help provide that clarification.
The Irrigation Department is well established and capable of undertaking the construction and other tasks placed upon it by this Project. The Irrigation Department will need 18 additional staff at the schemes plus some number to be decided later for O&M at the Gal Oya Irrigation Project. Training will be conducted by the Project for Advancing Settlement Expertise (PASE) within the Ministry of Lands and Land Development, tho Irrigation Departnent's Galgamuwa Irrigation Training Institute, the Sri Lanka Institute of Development Administration, the University of Moratuwa and the University of Peradeniya. All are capable. However, PASE is a United Nations Development Project that may not continue. If not, its training responsibilities will be taken over by the Sri Lanka Institute of Development Administration or the Irrigation Management Division itself. Research will be contracted out to capable Sri Lanka institutions.
xix Overview of Technical Assistance
Technical assistance is expected to be provided by a private firm and a university as appropriate for the structural and managerial emphasis of the ISM Project. Three consultants will carry out the major technical assistance efforts; one each at Headquarters (project/financial management), Polonnaruwa (engineer) and Ampara (engineer) for the life of the project. Long-term experts shorter times staying for will aid the consultants. Most of the long-term experts will be present early in the project to help systematize and establish procedures and conduct on-the-job training. Technical assistance includes support for the farmer-organization effort; maintenance system improvements; computer-assisted; scheme-operation models; the financial management system; and the monitoring# evaluation back system and feed introduced under the ISM Project. The long-term personnel include computer specialists, financial-management specialists, agricultural economists and &gronomists. Short-tarm personnel would include consultants mentioned earlier who return on TDY at critical junctures in the program. Other short-term assistance would be provided by a water management design engineer, a training specialist in O&M to help the Galganuwa Irrigation Training Institute prepare training manuals, and a consultant to assist the Project for Advancing Settlement Expertise with training materials for project managers. Status at End of Protect
After five years, the integrated program of irrigation systems management is expected to result in the following conditions:
" Better communication and coordination among farmers' organizations, Irrigation Management Division personnel, and Irrigation Department personnel;
• Increased capability of IMD to create farmers' organizations, to incorporate computerized financial manage ment practices, and to monitor, evaluate and provide feedback; * Improved operations and maintenance procedures incorporated into the standard operations of the Irrigation Department;
Improved methods for creating and strengthening farmers' organizations;
" Annual maintenance activities at all major irrigatlon schemes incorporated into improved financial management procedures;
xx * Monitoring, evaluation and feedback strengthened in donor funded irrigation projects by requiring seasonal and annual reports of important performance indicators;
* Strengthened training capability in the Galgamuwa Irrigation Training Institute (O&M training), the Agrarian Research and Training Institute (for training institutional organizers to help farmers create farmers' organizations and for research on methodologies), the Sri Lanka Institute of Development Administration (to provide assistance irn computerized finan cial management), and the Project for Advancing Settlement Expertise (for project management training); * Analysis of monitoring, evaluation and feedback data and research to evaluate strategies for improving irrigated agriculture;
* The Gal Oya Left Bank Canal system being maintained in a sustained condition after pragmatic rehabilitation and supporting a new program of improved farm management and diversified agricultural production during the life of the project, and/or afterwards; and * Pragmatic rehabilitation of the Gal Oya Right Bank Canal system and essential structural improvements at the four Polonnaruwa tanks to make them highly suitable for a new program of improved farm water management and diversified agricultural production.
xxi I. PROJECT RATIONALE
The goals of USAID's Irrigation Systems Management (ISM) Project are to help the Government of Sri Lanka (GSL) expand food production, increase employment opportunities, and raise the standard of living for farmers with small landholdings.
Assisting the GSL's effort to improve the performance of existing irrigation systems will enable the proje,.t to meet its goals efficiently. The IMS Project will work with the newly established Irrigation Management Division (in the Ministry of Lands and Land Development), the Irrigation Departments and with other departments and agencies to carry out the second phase of a coordinated, water management/improvement program, begun in 1979 by USAID's Water Management Project (383-0057). Such assistance will develop the nation's institutional capability for sustaining Increased food production.
The GSL's fifth Public Investment Plan (May 1983) does not provide for new irrigation projects after 1984. The plan states, "With the gradual slowing down of the Mahaweli program, irrigation and agriculture outside Mahaweli will receive high priority." In addition, the National Agriculture, Food and Nutrition Strategy says, "The future strategy in irrigation development should shift to rehabilitationsp improved water management and recovery of O&M costs."
The priority given the management of existing irrigation systems was clearly stated on July 2, 1982c by Gamini Dissanayake, the Minister of Lands and Land Development and Mahaweli Development. "The challenge...is not to extend frontiers of irrigation but to intensify them. Having realized that the major constraint is not land but water, we must use all our resources, our skill, to see that more is produced within the available resource...We must now make a radical departure from our preoccupation with mere design and construction. We must look to the farmer as the center of this whole exercise."
A proposed Water Resources Act and an amendment to the Irrigation Ordinance that makes establishing water user associations (farmer organizations) legal further shows GSL's commitment to improved water management. The Water Management Project is now test ing farmer organizations in Gal Oya. The legislation also will estab lish a court system to settle disputes over water allocation. In addition, the GSL recently instituted a system of water-user charges that puts the proceeds into an operations and maintenance (O&M) fund. These steps exemplify the GSLts irrigation strategies for water management. The ISM Project will help create on- and off-farm employment opportunities and increase the incomes of farmers with small landholdings. The Country Development Strategy Statement cites the importance of policy dialogue on increasing farmer participation in financing, designing, constructing, operating and maintaining irriga tion systems. Farmer involvement, begun under the Water Management Project, will continue under the ISM Project.
The IMS Project will work nationally and locally to help the GSL provide a more reliable and adequate supply of irrigation wa*er to existing irrigation schemes. Nationally, the Project will strengthen the GSL's institutions by collecting Information about the internal workings of the irrigation systems; monitoring, evaluating, and refin ing the Project's improvements; developing training programs to fur tier enhance water management knowledge and skills; improving finan cial management to provide accountability and information that will enhance planning; and evaluating the program for further improvements to transfer knowledge to other irrigation projects.
Locally, the ISM Project will test and demonstrate improve ments on selected irrigation schemes that make irrigation systems more responsive and that allow sustained agricultural productivity. To implement the program locally, the Project will develop and strengthen farmer organizations, improve management procedures and methods, and provide funding for essential improvement of irrigation headworks and channels.
To determine the appropriate intensity of rehabilitation for the benefit of GSL planners and USAID, the ISM Project will provide data about the resources required to improve irrigation schemes and the cost-effectiveness and sustainability of the options under consideration. The options range from sole reliance on changing the management of irrigation schemes with no funds for structural repair (annual O&M cost of Rs. 100-200 per acre) to major rehabilitation (capital cost of Rs. 5,500 per acre plus an annual O&M cost of Rs. 200 per acre).
The GSL has already committed itself to improving system management through the Integrated Management of Major Irrigation Schemes (INMAS) program (Annex A). INMAS appoints a project manager and creates a project committee that includes farmer representatives and other officers concerned with agriculture. No funding besides the 0&M fees (Rs. 200 per acre) are provided for operations and main tenance or structural improvements. Thus, this program represents the minimum use of resources. Judging by the older, deteriorating irriga tion schemes, this approach does not appear to lead to the sustained quality of operation needed to support continued increases in agricul tural productivity.
2 The "pragmatic" rehabilitation of the Gal Oya Left Bank Canal system lies at the midpoint of the improvement spectrum (capital cost of Rs. 2,700 per acre). "Pragmatic" rehabilitation represents an attempt to limit structural improvements to those needed to control water in the scheme rather than restore the system to its original designed condition. If farmer organizations continue to receive support and adequate O&M funds, then the Gal Oya scheme will serve as the outstanding example in Sri Lanka of a sustainable delivery network that can support continued increases in crop production. Feasibility studies of irrigation rehabilitation projects in Sri Lanka have consistently demonstrated that rehabili-ation is economically desirable. For example9 the project papers for Uda Walawe indicated an internal rate of return of 35%, while 'the project paper for the Gal Oya Left Bank Canal system indicated an internal rate of return of 23%. A preliminary appraisal of the Major Irrigation Rehabilitation Project, which is funded by the World Bank and involves seven inajo#r tank irrigation nchemes, shows expected internal rates of return of 14% to 34% with an average of 20%. A project paper for the Mahaweli Ganga Project indicates that when sunk costs are not considered, the internal rate of return should reach 21%. Rehabilitation programs show ample economic justification, provided thiat adequate O&M funds are available after rehabilitation. An analysis of the ISM Project shows that it, too, is economically justifiable.
What is different about the ISM Project? What new information can the GSL gain to apply to economic development? How will such new information be used?
First, the ISM Project is designed to find more cost-effective and less capital-intensive methods of rehabilitating irrigation schemes by differing the intensity of the improvement programs. Second, the ISM Project is designed to support institutional changes that substitute a sustainable management system for the construction deterioration-rehabilitation-deterioration pattern that seems to dominate most irrigation schemes in the world. Third, the ISM Project is designed to emphasize system reliability and responsiveness as the means to continually increase agricultural productivity. The ISM Project also emphasizes farmer participation for operating and manag ing the scheme. Farmer participation will make the scheme more responsive and will encourage the farmers to shift to more productive farming techniques.
The ISM Project will enable the GSL to test and demonstrate the relative effectiveness and efficiency of irrigation improvements that fall between "pragmatic" rehabilitation and the INMAS program in intensity. In four irrigation schemos in Polonnaruwa District, with a
3 total irrigated area nearly identical to that served by the Gal Oya Left Bank Canal (65,000 acres), essential structural improvements to control and measure water flow will make distribution equitable at the field channel inlets. The average investment for the project sites in Polonnaruwa District will be Rs. 1,800 per acre, which is considered more than adequate for the essential structural improvements, thereby leaving funds for taking care of other priority maintenance needs. The ISM Project will document the amount of funds expended for essen tial structural finprovements on each tank irrigation scheme, which the GSL could use to consider even lower investments on other schemes. In addition, the I3M Project will develop a management improvements package for the Ridi Bendi Ela Scheme (about 6,500 acres) in Kurunegala District without including funding for structural improve ments or maintenance needs. This package will allow the GSL to draw conclusions about the relative effectiveness of improving management only.
Besides presenting a less capital-intensive approach, the ISM Project places less emphasis on construction, which tends to become the major focus of irrigation projects, than on management. The combination of structural improvements and better management are expected to provide benefits far superior to typical major rehabilita tion projects. The greatest benefit of the ISM Project will not be capital savings, which will be substantial, but rather the increased agricultural productivity that results from providing a dependable water supply and responsive irrigation system to farmers year after year.
4 II. PROJECT DESCRIPTION
A. Emphasizing Irrigation Management
Throughout the world, but particularly in Asia, there is an O&M "r'ennaissance" occurring in national irrigation agencies. Many factors have led to this re-emergence of traditional irrigation chores:
crecognition that new project sites and water sources are either unavailable or too difficult and costly to develop in the foreseeable future.
erecognition that borrowing to finance capital-intensive infrastructure projects has slowed in nations burdened with heavy debts.
erecognition that previous irrigation projects have not reached the optimistic potentials set forth in feasibility studies and project documents.
erecognition that irrigation systems are operated by people, and that training and supervision are necessary to develop ing the needed personnel.
erecognition that many of the best-operated irrigation systems are managed by farmers, including small systems in Asia and many large irrigation systems in Spain and the western U.S.A., which suggests a need for a larger farmer role in irrigation management.
erecognition that the construction-degradation rehabilitation-deterioration pattern--which sometimes takes 3-5 years, but more frequently takes 10-20 years--is not an appropriate use of resources when vigilant maintenance and smooth operations could prevent recurring, massive rehabilitation costs.
Consequently, many irrigation agencies are rapidly moving from developing new irrigated lands to making existing irrigation systems more productive. With this change has come the recognition that present management is the greatest deterrent to increasing agricul tural productivity. A combination of structural and management solu tions are needed to suit specific irrigation project sites.
5 To achieve more intensive irrigation water management one must first control the water supplies. The amount of storage and the existence of flow control structures in the irrigation channel network indicate the degree of control obtained.
Secondly, one must Wr.ta: the irrigation system so as to distribute water equitably and on time to satisfy crop water requirements. Effective operation requires that someone mainain the irrigation headworks and channels in good condition so that water management can be improved.
Thirdly# one must make it easier to practice good f manage ent so that the available water is used to grow crops. One can measure such beneficial use with many indices, but a simple index is to compare crop evapotranspiration with farm water deliveries. With effective water control, equitable and timely operation, and adequate maintenance, the focus can turn to improving irrigation practices on farmers' fields.
B. Project Objectives
The major objectives of the ISM Project are to develop and strengthen farmers' organizations; improve operations and maintenance; enhance the capabilities of Irrigation Department staff; support the program for Integrated Management of Major Irrigation Schemes (INMAS); institutionalize training; and document the lessons learned.
1. Farmer Organizations
Organizing the farmers served by a single field-channel inlet is relatively new in Sri Lanka. The Water Management Project helped create field-channel farmer organizations on a large portion of the Gal Oya Left Bank Canal system. Also, some higher-level organizations, including area councils and distributary-channel organizations, have been created through federation of field-channel groups. This work needs to continue. It will take many years to organize all of the field-channel and higher-level groups in the Gal Oya Left Bank system. These organizations need time to settle water disputes among members, develop cooperation for operating and main taining field-channels, learn to work with government employees in the irrigation department, and effectively participate on the project committees of the INMAS program. Testing options for organizing and working with farmers is critical to finding those that enhance and strengthen the farmers' contribution to improved irrigation system management.
6 2. Operation and Maintenance (O&M)
Solutions more cost effective than major rehabilitation are needed to improve deteriorated irrigation systems. More importantly, institutions need the ability to maintain the improved system year after year without allowing serious deterioration. The Irrigation Department practiced necessary maintenance procedures more than a decade ago, and there also were some cases of good operating procedures. The GSL must re-establish these former practices and adopt additional practices that enhance the capability of the Irrigation Department to equitably distribute water to farmer organizations, document maintenance needs to facilitate financial management and accountability, maintain irrigation headworks and channels in good condition for a long time, and effectively communi cate with the farmer representatives. Fortunately, the irrigation engineers have sufficient capability to design, construct, operate and maintain irrigation systems and could rapidly adopt improved O&M practices.
3. Project Management
"The program for Integrated Management of Major Irrigation Schemes (INMAS) seeks to establish a harmonization of the various inputs and services necessary for increasing agricultural productivity with special focus on the use of irrigation water which has been identified as the most critical and limiting resource in irrigated agriculture. It would identify the components for which various line agencies would be responsible and seeks to coordinate these activities through a system of Project Management. The lack of viable farmer institutions has also been a major constraint in involving farmer participation in management decisions affecting them. The program seeks to rectify this by giving priority to the setting up of farmer institutions which would provide an effective mechanism for farmer-effective dialogue." INMAS is highly compatible with the purpose and objectives of the ISM Project. A new program, INMAS needs support to ensure its success, while remaining flexible toward refinements in the program. The institutional organizers (IOs) will serve under the INMAS project managers and they also need substantial support. The O&M fee is a major reason, though not the only reason, for improving financial management at INMAS and the Irrigation Department in individual irrigation schemes and at the headquarters of the Irrigation Management Division (IMD), the Irrigation Department, and the Ministry of Lands and Land Development (MLLD).
7 Effective management requires good monitoring, evaluation, and feedback to obtain informatilon about the internal workings of the irrigation scheme and to develop an understanding of what is managed.
4. Training
Under the Water Management Project, the Galgamuwa Irrigation Training Institute (GITI) has matured into an effective training center for technical assistants, irrigation engineers, and Irrigation Department work supervisors. This training capability must continue and should be strengthened. The IO's were trained by the Agrarian Research and Training Institute (ARTI): ARTI's role is critical to the success of the ISM Project. The Project for Advancing Settlement Expertise (PASE) can train supervisors in project management. The Sri Lanka Institute of Development Administration can conduct training programs in financial management. Also, the University of Moratuwa and the University of Peradeniya can support irrigation operations, system's analysis, and monitoring and evaluation training.
5. Applied and Policy Research
Although the residents at the project sites will benefit, a more important measure of the ISM Project's success will be in the lessons learned for transfer to other irrigation schemes in Sri Lanka and Asia. The ISM Project must establish the causes of irrigation problems and find solutions to the problems to accomplish their objectives. Also, the ISM Project needs to enhance the capability of some organizations in Sri Lanka to conduct applied and policy research. For example, one of the most important applied-research topics is options for creating and strengthening farmers' organizations, a topic that ARTI is well able to research. Incentives and accountability for O&M fees is another highly important applied research topic.
The ISM Project needs to identify various organizations to conduct the many research endeavors important tc the success of the Project and to document the lessons learned pertaining to transferable technology and helpful transfer policies.
C. Status at the End of the Project
After five years, the integrated program is expected to result in the following conditions:
eBetter communications and coordinction among farmer organizations and personnel from the Irrigation Managentent Division (IMD) and the Irrigation Department;
8 * Increased capability of IMD to create farmers' organizations, incorporate computerized financial manage ment practices, and monitor, evaluate and return feedback;
* Tmproved operations and maintenance procedures incorporated into the standard operations of the Irrigation Department;
* Improved methods for creating and strengthening farmers' organizations;
*Annual maintenance activities at all major irrigation schemes incorporated into improved financial management procedures;
* Monitoring, evaluation and feedback component strengthened in donor-funded irrigation projects by requiring regular seasonal and annual reports of important performance indicators;
* Strengthened training capability in the Galgamuwa Irrigation Training Institute (O&M training), the Agrarian Research and Training Institute (for training institutional organizers (IOs) to help farmv's create farmer organiza tions and to research methodologies), the Sri Lanka Institute of Development Administration (to provide assis tance in computerized financial management), and the Project for Advancing Settlement Expertise (for project management training);
" Analysis of monitoring, evaluation ano feedback and research to evaluate strategies for improving irrigated agriculture;
*The Gal Oya Left Bank Canal system being maintained in a sustained condItion after pragmatic rehabilitation and supporting a new program of improved farm water management and diversified agricultural production during the life of the project, or afterwards; and
* Making the Gal Oya Right Bank Canal system and the four Polonn.ruwa District tanks highly suitable for a new progratm of improved farm water management and diversified agricultural production.
9 D. Project Elements
The project elements are farmers' organizations; operations and maintenance; financial management; monitoring, evaluation and feedback; training capacity enhancement; and research. The inputs and outputs for each of these elements follows. 1. Farmer Organizations
Farmer organizations will be an integral part of the ISM Project. The ISM Project will derive the organization principles and methods to use from the experiments that ARTI conducted in the Gal Oya Left Bank Canal system as part of the Water Management Project. The goal is to create effective and responsible farmer par ticipation in the operation and maintenance of the irrigation schemes. The immediate objectives are to create informal field-channel groups that completely operate and maintain their field channels, create intermediate organizations for farmer representatives from each field channel group that can serve purposes determined by the farmers, and encourage effective participation from the farmer representatives sent by the intermediate groups to the Pro'3ct Committee. These objectives fully accord with the INMAS program (Annex A).
The institutional organizers will help create the farmer organizations. ARTI will train the IOs and send them to a Project irrigation scheme (Annex B). Experienced 1Os will supervise newcomers and will report to the IMD project managers. 2. Operations and Maintenance
The O&M learning process will provide more detailed knowledge about what happens within the irrigation system, document maintenance needs, improve the capability for equitable water distribution, improve communication between Irrigation Department O&M personnel and the farmer representatives, gather better water and land use data, and document lessons learned for future systcm improvements. The Water hnagement Project will have rehabilitated the Gal Oya Left Bank Canal system at a construction cost of Rs. 2,700 per acre and written a preventive maintenance plan before the ISM Project starts. The ISM Project will support the preventive maintenance plan, which recommends increased GSL staffing and provides Rs. 50 per acre each year for maintaining tho main and branch canals. Farmers will use O&M fees and their own labor to maintain distributary and field channels. A computer model for daily operations will provide more responsive mechanisms for meeting irrigation water demands ard obtain ing substantial water savings during rainy days. Radio and transpor tation equipment will be purchased to support daily operations, nd an
10 operations center will be constructed to house the micro-computer, the radio base, and a few operations personnel. A computer specialist and an irrigation engineer will provide technical assistance.
The Gal Oya Right Bank Canal system will be pragmatically rehabilitated with a construction cost of Rs. 2,500 per acre using construction equipment purchased under the Water Management Project. A computer model for weekly water delivery schedules similar to the Gal Oya Left Bank model will be used. The ISM Project will purchase radio and transportation equipment. A long-term irrigation engineer and a short-term design engineer, systems engineer and computer specialist will provide technical assistance.
The four schemes in Polonnaruwa District will undertake essen tial structural improvements to upgrade the irrigation headworks and channels to provide adequate water control and measurement for operat ing the irrigation network. Essential structural improvements are those needed to provide either the control or monitring ability necessary to achieve the desired level of management during a par ticular time span. A budget of Rs. 1,800 per acre allows the system management to also take care of some priority maintenance needs.
ISM funds will purchase small construction equipment. For each irrigation scheme the ISM Project will help develop a computer model for weekly water delivery schedules, construct an operations center and purchase radio, engineering, office and transportation equipment. O&M personnel in the Irrigation Department will do the work. A long-term irrigation engineer residing in Polonnaruwa, and a short-term system engineer and computer specialist will provide tech nical assistance.
Table 1 lists the expected outputs of the ISM Project for the four tank irrigation schemes in Polonnaruwa District and the Gal Oya Right and Left Bank Canal systems. For the Gal Oya Left Bank Canal system, the outputs listed are in addition to those completed under the Water Management Project.
3. Financial Management
Effective operation and maintenance can only be accomplished with adequate funding, but historically, funding has been inadequate. To remedy thIs situation, the GSL recently began collecting an opera tions and maintenance fee from farmers in major irrigation schemes. The fee has been set at Rs. 100 per acre and is scheduled to increase to Rs. 200 per acre over the next four years. The GSL will contribute Rs. 100 per acre the first year; decreasing to nothing by the end of the four years. The Irrigation Management Division must distribute and account for the funds, although the Irrigation Department will spend most of them.
11 Table 1. Summary of Operations and Maintenance Outputs
Location Output
Kurunegala District: Compete operations and maintenance survey Ridi Bendi Ela/Magalla annually. Wewa Scheme Prepare and implement operations and maintenance plan annually. Update discharge rate for all control structures and bifurcation points annually. Update and quantify system water losses annually using field measurements. Improve water delivery schedules and using a micro-computer model. Refine operations plant prepare preventive maintenance plan and implement by the ena of the project.
Polonnaruwa District: Complete a "walk-through" operations survey. Parakrama Samudra, Complete and implement plan to gain flow control Kaudulla, Minneriya (Gal and measure water. Amuna), and Giritale Complete "walk-through" maintenance survey for Schemes improving channels. Complete maintenance plan for O&M with workplan priorities. Complete priority maintenance needs annually as approved. Develop discharge ratings for all control & measurement points annually. Measure conveyance, distribution & application losses annually. Prepare large-scale maps (1:1000) for operational impl ementation. Develop and implement operational plan based on field requirements and water losses. Develop computer model for weekly, improved deliveries. Develop revised operations plan and implement. Develop scheme operations improvement plan. Develop and implement preventivp -idintenance plans.
Amparai District: Gal Complete "walk-through" operations survey. Oya Right Bank Canal Complete and implement plan for flow control and System water measurement.
12 Table 1. (continued)
Location OutDU±
Complete "walk-through" maintenance survey for improving channels. Delineate maintenance plan for 'O&M with workplan priorities. Implement priority maintenance naeds annually as approved. Develop discharge ratings for control and water measurement annually. Measure conveyances distribution & application losses annually. Prepare large-scale maps (1:1000) for operational implementation. Develop and implement operational plan based on field requirements and water losses. Develop computer model for weekly* improved deliveries. Develop revised operations plan and implement. Develop scheme operations Improvement plan and impl ement. Develop preventive maintenance plan and tmpler--. 4..
Amparal District: Gal Implemrnt preventive maintenance plan. Oya Laft Bank Canal Mjvelo daily operations computer model with System necessary hydraulic transients inputs. Calibrate and refine daily operations computer model. Implement daily operations model with feedback from field personnel and farmer representatives. Develop a revised daily operations plan; implement by end of project. Develop revised preventive maintenance plan; implement by end of project. Develop revised irrigation scheme improvements plan.
The ISM Project will support financial management by improving the capabilities of managers and accountants in the IMD and the Irrigation Department. Thi Sri Lanka Institute of Development Administration (SLIDA) will develop accounting and financial report
13 systems for micro-computer use by IMD project minagers, and the Irrigation Department accountants. In addition, the SLIDA will develop training courses in financially managing irrigation O&M for accountants, project managers, irrigation engineers, and other Irrigation Department managers. The IMD Deputy Director (Finance) will oversee the trainers and will serve as Project Deputy Director for Financial Management. Micro-computers and the SLIDA programs will be supplied to the IMD, project managers, deputy directors and irriga tion engineers.
Under the auspices of the IMD Deputy Director, (Finance), the IMD will analyze the data prcduced by the SLIDA programs to determine appropriate levels of and mecranisms for O&M funding.
The ILLD intends eventually to collect the O&M fee from farmers through the field-channel farmer organizations. To make this possible, SLIDA will develop a simple, appropriate bookkeeping system for farmer organizations and the necessary materials for training farmers to use the financial procedures. Over the life of the project, SLIDA and IMD will explore ways to train farmers to use the system, perhaps by using los.
The central thrust of the financial management component is to institutionalize improved procedural and analytical mechanisms in the IMD and the Irrigation Department. Improved financial management will enhance budget planning and allocating O&M funds, and will increase financial accountability, thereby encouraging farmers to support ')&M fees more willingly. In addition to items already mentioned, the financial management program will produce a collection of case studies, a cadre of accountants nnd managers in the Irrigation Department and IMD trained to use micro-computers, and an evaluation of the most appropriate O&M fee for each scheme. Additional contribu tions from the ISM Project include providing technical assistance to SLIDA and IMD to develop the micro-computer accounting and financial report system and funding for training accountants and managers in financial management.
4. Monitoring, Evaluation and Feedback
The monitoring, evaluation and feedback element is a system of data gathering, assessment, and reporting to support project management. The information gathered must be carefully defined to be pertinent and useful for project management and for project evaluation. Table 2 summarizes the results of the monitoring, evalua tion and feedback program, which includes the elements needed to establish the system, the trained personnel, the reporting schedule and when the reports should be used to make decisions. Over the life of the project, these outputs would be used to produce reports from the fields and farms and to aggregate data for the scheme/project and
14 Table 2. Summary of Monit)ring, Evaluation and Feedback Outputs for the Irrigation Management Division and the Irrigation Department
Needed to establish Trained Report Report system personnel schedule use
At MLLD headquarters Codified MEF systems Specialized Seasonally Review & MEF Staff Planning
Regular procedures MLLD managers Annually Review & planning
Detailed job Micro-computer descriptions operators
Detailed workplans
At District headquarters System code MEF specialists Monthly Review & planning
Regular procedures Micro-computer Seasonally Review & operators planning Detailed job IWLLD district Annually Review & descri pti ons officials planning
Detailed workplans
At ProJect Scheme Headuartgrs System code Technical Weekly Scheme assistants' operations to collect data review & planning
Regular procec'r .- Technical Monthly Review & assistants' to planning operate micro computers
Detailed job Project managers Seasonally Review & descri ptions planning
Detailed workplans Irrigation Annually Review & engineers planning
MLLD - Ministry of Lands and Land Development MEF - Monitoring# evaluation and feedback
15 the district and national headquarters of IMD and the Irrigation Department. Table 3 summarizes the contributions the ISM Project will make to this program.
5. Training Capacity Enhancement
The training required to efficiently implement the ISM Project on time would be conducted by ontities within the MLLD, organizations outside of MLLD through contracts, and overseas organizations who would train the trainers in the preceding groups. Tables 4 and 5 summarize the training from the ISM Project.
Table 3. Summary of Monitoring, Evaluation and Feedback Inputs from the ISM Project to the Irrigation Management Division and the Irrigation Department
Activity Input
Technical Assistance Short Term - establish MEF systems and procedures - evaluate MEF performance
Long Term - management assistance at MLLD headquarters and district and project scheme 1 evel s
Training Contractual training by appropriate engineering faculty on micro- computer MEF system for personnel at MLLD headquarters, district offices and project schemes
Commodity Support Micro-computers at MLLD headquarters, district offices and project schemes Appropriate vehicles Monitoring equipment Micro-computer at university training contractor
Construction Support Operations center at 3 district DDI offices (Amparai, Polonnaruwa & Kurunegala)
Operations sub-centers at 9 project manager/irrigation engineers' offices (Four at Gal Oya plus one each at Giritale, Minneriya, Parakrama Samudra, Kaudulla and Ridi Bendi Ela Scheme) DDI - Deputy Director of Irrigation
16 Table 4. Training Summary of Courses to be Conducted Annually within the Ministry of Lands and Land Development
Course Client Duration Site No./ Courses/ Total Course Year Time/Yr
Galgamuwa Irrigation Training Institute (GITI)
Improved Irrigation 1 week GITI 25 2 2 wks O&M engineers procedures
Improved Technical 2 weeks GITI 25 4 8 wks O&M assistants procedures
Improved Work 2 weeks GITI 25 4 8 wks O&M supervisors procedures
Special 1 week GITI/ 5-25 2 2 wks short- Project courses as Site needed
Total 20 wks/yr
Project for Accelerating Settlement Expertise (PASE)
Orienta- MLLD 1 day PASE 15 1 .2 wks tion to officials ISM/Up date on ISM
Orienta- District 2 days PASE 10 1 .4 wks tion/Up- officials date on ISM
Orienta- 3 project 3 days Project 10 3 2 wks tion/Up- committees sites date on ISM
17 Table 4. (continued)
Course Client Duration Site No./ Courses/ Total Course Year Time/Yr Orienta- 3 sets of 1 week Project 10 3 3 wks tion/Up- field offi- sites date on cers ISM
Project Project mana- 1 week PASE 30 1 1 week mgmt. gers & Asst. skills project mana for ISM gers
Total 7 wks/yr
The Galgamuwa Irrigation Training Institute will provide the following training to Irrigation Department personnel at the irrigation schemes:
0 Operations and maintenance skills for irrigation engineers, technical assistants, and work supervisors;
* Short courses as needed by the ISM Project--i.e., a three-day course for headquarters staff on monitoring, evaluation and feedback as used in the ISM Project;
• A three-day course for headquarters staff on improved operations and maintenance as used in the ISM Project; and " Special courses in each scheme for Irrigation Department personnel assigned to discharge-rating teams.
Within the Ministry of Lands and Land Development, the Project for Accelerating Settlement Expertise (PASE) will provide training to support the INMAS program emphasizing the ISM Project objectives and implementation requirements. This would include: eAr, orientation to the ISM Project and an annual update on Project activities for MLLD and district officials;
*Planning and implementation skills for project committee members;
*Implementation skills required by the ISM Project for field officers at each of the project sites, and
18 Table 5. Training Summary of Courses Conducted Annually on Contract
Course Client Duration Site No/ Courses/ Total Course Yr. Time/Yr
Agrarian Research and Training Institute (ARTI)
I0 IOs 6 wks ARTI 30 3 18 wks induction
10 update IOs 2 wks ARTI 30 3 6 wks
10 super- 10 super- 2 wks ARTI 10 1 2 wks vision visors
10 update 10 super- 1 wk ARTI 10 1 1 wk visors
Orienta- MLLD of- 1 day ARTI 25 2 .4 wk tion/up- ficials date on farmer organiza tion
Total 28 wks/yr
Sri Lanka Institute of Development Administration (SLIDA)
Financial Project 2 days SLIDA 10 1 .4 wk mgmt. (FM) managers for mana gers
Financial FM staff 1 week SLIDA 10 1 1 wk mgmt. for HQ
Financial FM staff 1 week 3 5 3 3 wks mgmt. for Districts district
Financial FM staff 1 week 9 Project 5 9 9 wks mgmt. for sites project
Total 14 wks/yr
19 Table 5. (continued)
Course Client Duration Site No/ Courses/ Total Course Yr. Time/Yr
University of Peradeniya: Faculty of Engineering
Micro- Irrigation 2 weeks 9 project 4 9 18 wks computer engineers sites opera tions model
Opera- MLLD offi- 3 days ID/IMD/ 12 1 .6 wks tions cials HQ models for managers
Total 19 wks/yr
University of Moratuwa: Faculty of Engineerir;
Micro- MEF irriga- 2 weeks 9 project 4 g 18 wks computer tion engi- sites MEF neers & technical assistants
IEF sy- MLLD offi- 3 days ID/IMD/ 12 1 .6 wk stems for cials HQ managers
Total 19 wks/yr
eProject management skills required by the ISM Project for project managers and assistant project managers.
The Agrarian Research and Training Institute (ARTI) will, through a contract with the IMD, provide the farmer organizational training for the ISM Project. ARTI will provide four courses as follows: orientation for newly employed institutional organizers, a refresher course each year for lOs, orientation for 10 supervisors, and a refresher course each year for 10 supervisors.
20 The Sri Lanka Institute of Development Administration (SLIDA) will provide a series of courses on financial management through contract to the IMD for managers, for MLLD financial staff at headquarters, district financial staff, and irrigation-scheme finan cial staff.
The Univo.sity of Peradeniya, Faculty of Engineering, will provide a course on the utilization and refinement of the computer model developed for Gal Oya Left Bank at each of the ISM Irrigation Operations Centers. The University would also provide a micro computer course for O&M personnel at district and ID headquarters.
The University of Moratuwa: Faculty of Civil Engineering, will provide a course developed for the ISM Project on monitoring, evalua tion and feedback using micro-computers for project managers' staff, irrigation engineers, technical assistants, and work supervisors.
Overseas training for trainers from GITI and PASE would include attending an irrigation management shortcourse followed by one year of academic training at a U.S. university in developing, refining and evaluating training courses; developing training aids and methods of classroom teaching; and disciplinary training to fill ISM Project needs.
Trainers from ARTI and SLIDA would attend short-term courses at training centers and development projects within Asia. Likely training centers and sites are the National Irrigation Administration, the Asian Institute of Management, and the University of the Philippines at Los Banos; all located in the Philippines.
Training inputs of the ISM Project are:
eannual support for specific courses;
etechnical assistance for developing training material and evaluating training programs;
ecommodity support for purchasing training equipment includ ing projectors and micro-computers as appropriate to the specific program need and institution, as well as for library acquisitions; and
elong-term and short-term training for trainers overseas.
21 6. Research
Several important applied-research topics have been identified. To keep Project research flexihle, however, the specific topics and the level of funding for each topic will be decided during the life of the project. The sequence of events for research will be as follows:
*Specify research questions. *Request research proposal(s). " Receive proposal (s). " Review proposal(s). *Negotiate and sign research contract(s). ePlace personnel at the project site(s). oSubmit first seasonal (yAJ1LIor mAba) interim report. *Submit subsequent seasonal interim report(s). *Submit draft final report for review. *Appropriate agencies review report and provide writtan comments. eSubmit final report. *Hold Irrigation Water Management Workshop for senior officials, professional project personnel, and irrigation researchers soon after project termination and then print final report. Suggested topics include:
" Policy research on irrigation lcr'e collected: incentives for payment and accountability of use; *Comparative analysis of a range of investments in irrigation improvement: from INMAS to full rehabilitation such as the " Major Irrigation Rehabilitation Project.
" State of irrigation management: convey, nce, distribution and application losses in four irrigation t nks at Polonnaruwa.
* Indigenous irrigation management: lessons from tanks managed by farmers; and * Eviluation of optional personril qualifications for institutional organizers, assignment intenFity, and organizational methods. 7. Project Sites
The irrigation schemes listed in Table 6 have been selected as project sites. Their location is shown in Figure 1.
22 Table 6. Project Sites
Irrigation Scheme District Acreage Specified Added Total Gal Oya Left Bank Amparai 45,000 20,000 65,000
Gal Oya Right Bank Amparai 22,000 10,000 32,000 Parakrama Samudra Polonnaruwa 19,000 5,000 24,000
Giritale Polonnaruwa 6#200 1,300 7,500
Minneriya (Gal Amuna) Polonnaruwa 16,750 5,300 22,050
Kaudulla Polonnaruwa 10,400 1,600 12,000
Ridi Bendi Ela Kurunegala 4,800 1,700 6,500
Hakwatuna Oya Kurunegala 4,200 1,300 5,500
Gal Ova Irrigation Prolect
The Gal Oya (. means river) Irrigation Project is primarily located in Amparai District, but also stretches into Batticaloa District. Both districts are along the southeastern coast ut Sri Lanka. The total irrigable acreage is roughly 120,000 acres: the Left Bank Canal system serves 65,000 acres and the Right Bank Canal system ser-.es 32,000 acres. Also, the River Division serves lands near the river bottoms (Figure 2).
Most of the irrigation water is stored in Senanayake Samudra reservoir, which has a capacity of 770,000 acre-feet. Other small tanks provide additional storage and are quite important in regulating irrigation deliveries. The Gal Oya Left Bank Canal system was con structed in the 1950's. The Right Bank Canal system was completed about 1960. Lands served by diversions from the main channel of Gal Oya have boen irrigated throughout Sri Lanka's history.
23 Jaffna -N-
Trincoma lee Anuradhapura DRY 0 ZONE 10 Polonnaruwa Batticaloa Kurunegala 1'900 0
' Kandy Ampara
Colombo ! WET ZONE
Gall 0 50 100 km a I Polonnaruwa SCALE Giritole Parakrama Samudra Kurunegala Minneriya Ridi Bendi Ela Kaudulla Hakwatuno Oya Ampara Gal Oya Left Bank GaI Oya Right Bank
Figure 1. Irrigation Systerns Management Project Sites in Sri Lanka.
24 ,,' (.r:i .F"."', .. /
"', A-, " L7:.q.
,,/ r: '
- I...,> 2..
-\q)
, • ,. / 7
,,) ,,.,-(I -
--.--',)," _ ...7,...... :_._ ,
F~gurtu 2. The Gal Oya Irrigation Project in Southeastern Sri Lanka. Polonnaruwa District Tanks
The four tank irrigation schemes in Polonnaruwa District (Figure 3) are centuries old, but all of them were rehabilitated between 1932 and 1962. The Minneriya Tank was originally constructed 17 centuries ago. During the 1950's, the tank capacity was enlarged to 110,000 acre-feet to serve 16,500 acres. Expansion led to paddy cultivation along the surface drains, which resulted in building the Gal Amuna Scheme to serve about 3,500 acres of lowlands (Figure 4). King Agrabodi constructed the Giritale 1L.nk in about 650 A.D. This tank was restored in 1904 and subsequently enlarged during the 1950's to a capacity of 17,500 acre-feet. In 1961, there were 4,500 acres served by this scheme, which has now expanded to 7,500 acres (Figure 5).
King Parakrama Bahu the Great (1153-1186 A.D.) was responsible for constructing the Parakrama Samudra 1ink (samudra means sea or large body of water). He is also credit(d with restoring and improv ing 1,395 irrigation works. Parakrama Sai..jdra was restored in the 1940's to a storage capacity of 98,000 acre-feet (Figure 6).
Kaudulla Tank was the last of the project sites in Polonnaruwa District to be restored (Figure 7). The present storage capacity is 49,000 acre-feet, which may be expanded to 170,000 acre-feet under the Mahawel I Project.
All four of these tanks receive supplemental water from the Mahaweli Project, a massive scheme of large, storage reservoirs and river diversion facilities now nearing completion. Also, the return flows from these four tank irrigation schemes discharge into small drain and river channels that fluw into the Mahaweli Ganga (ganga means large river). 8. Site Activities
The Gal Oya Left Bank Canal system has been selected as an ISM Project site because pragmatic rehabilitation will be completed during 1985 under the Water Management Project. This means additional investments in this system can have an even higher return. By the start of this project (January 1986), farmer organizations will exist on most field channels. Also, some area councils and distributary channel farmers' organizations will have been created. The ISM Project will complete the job of organizing farmers on all field channels and attempt to create higher organizations throughout the system.
26 goal@ 1 0 I, 2mis
1 0 I 2 3 kilometers
MEDIRIGIRYA A RUINS
*OMEDIRIGIRYA
GALOYA -- - JUNCTION
,MNGURAJ
Arnbum rinofg.
Figure 3. The Four Tank Irrigation Schemes in the Polonnaruwa District in Central Sri Lanka.
27 X
*tpo
......
...... ------...... ------*x,
--------- ---- ------------ it" ...... -- - - -- - - IMNNERI ...... - ------ - - - - ...... ------ - - - - ...... --------- ...... -------- -------------- - ---------- ----------- ...... ------ ------ ------ ...... NO ------------CO v LANDS
------scale ------1 1/2 0 1 2 miles ------1 1/2 0 1 2 3 kilowoofM
Figure 4. The Minneriya Tank Irrigation Scheme Including Gal Amuna in Polonnaruwa District, Sri Lanka. Scale
1/2 0 1 2 miles ',II ,', I * -H -1 1/2 0 ,.....1 2 3 kilometers ,mr-A ......
.! IR...... LA.DS ......
_..S:!:~i~!::!:i:"""-"...... -.-::::::i~iiiiS:i:Si:S !:!!:!i~i:'" .....::...... :...:..:.....:.....:...... ~ :!:::...... ~~:~ ~ ::::::::::::::::::::~ ~ ~ ~~~~~~...... " ::::: ...... : ': ...... '.:.. :. S...... ,~i!ii~iiii~~~~~iiliil~~ iiiiiiiiii~iii~iiii ' . .. .
Figure 5. The Giritale Tank Irrigation Scheme in Polonnaruwa District, Sri Lanka. ii ~~~ ------ii! ,!i' ; "'''
Figure 6. The Parakrama Samudra Scheme in Polonnaruwa District, Sri Lanka.
30 2~ 1 5 b smq
A' me
WmmAiTn LANO
Fgr ------7.h-a------...... Tank "rrigationSche: -District--Sr--L-nka. ....e in P l.nuw
:-:::-::- ...... ~ ~ ...... ------- .: ,,,. . .::.::::..:...... ======-.: ...:::::
" ..::::::::. :;: ::,:-,."€-...^======...==.=...=.,.:....:
.. ,:.:,.,:*: ...... -.:.... ,,...... -,...... ,..,
•.. ::,..:,..: .:..:....,.....,..., -1::,...... :...... ,:......
•.: :,:..-.:..,..-..:..:,'-. . ======...... -..:i:-[:
Figure 7. The Kaudulla Tank Irrigatiton Scheme in Polonnarua District#, Sri Lanka. The Water Management Project will develop an operations plan that incorporates field measurements of channel water losses and water measurement structures using computerized, weekly, water-delivery schedules throughout the system. The ISM Project will eventually schedule water deliveries daily by collecting field measurements of hydraulic transients in the irrigation channels that can be used to calibrate the computer model of the system, and by using radios and walkie-talkies for rapid communications among the farmer repre sentative for each farmers' organization, the Irrigation Department field personnel responsible for opening and closing the gates, and the Gal Oya Irrigation Operations Center (to be completed under ISM).
Project funds will be used to maintain the main and branch channels as part of a preventive maintenance plan, while O&M fees and farmers' labor will be used to maintain distributary channels and field channels. Improved financial management will be undertaken and the capacity for monitoring, evaluation and feedback will be strengthened. Training and research will continue.
The Gal Oya Right Bank Canal system was selected because it is part of the same system as the Gal Oya Left Bank Canal system, which is largely controlled by the Senanayake Samudra Reservoir. The avail able irrigation water supplies are inadequate in most years, which makes improved irrigation water management particularly important. About 4,000 acres of land in the lower portions of the system no longer receive irrigation water because of deteriorating irrigation channels and inadequate irrtgation water n.....ement on the 10,000 acres cultivated by the Sri Lanka Sugar Corporation. Project funds would be used for rehabilitation similar to the work done at the Gal Oya Left Bank Canal system. The construction equipment purchased with Water Management Project funds can be used to improve the Right Bank irrigation channels. Operations and maintenance, as well as other ISM Project activities, would be the same as in the four tank irriation schemes in the Polonnaruwa District.
The four tank irrigation schemes near Polonnaruwa will be maintained (rather than allowing them to deteriorate again) and operated so that farmers' organizations receive an equitable share of the available water on time. To accomplish these objectives an under standing and sensitivity about the internal workings of each irriga tion scheme must be developed through the operations and maintenance learning process and implementing an effective monitoring, evaluation and feedback component. Training to enhance professional capabilities is required, and research is needed to improve and transfer the process to other irrigation projects. To sustain an irrigation net work that can equitably distribute water, financial management must improve so that accountability for adequate operations and maintenance
32 is assured. A strong emphasis must be placed on organizing farmers for operations and maintenance and strengthening the farmers, organizations so they can continue to improve their irrigation manage ment to diversify and intensify their crop production.
The Ridi Bendi Ela Tank Irrigation Scheme, which serves 6,500 acres, was selected to test a lower level of irrigation system improvenent (Figure 8). This site, located in Kurunegala District, was purposefully chosen because it lies outside of Polonnaruwa and Amparai Districts, where higher levels of improvement are in use. At Ridi Bendi Ela, project funds would not provide for structurally repairing the irrigation channels, but would be available for all other ISM Project activities including farmer organizations; financial management; monitoring, evaluation and feedback; training; and research.
At the Hakwatuna Oya Tank Irrigation Scheme in Kurunegala District, which serves 5,500 acres, only research to study the impact of the INMAS program is to be funded (Figure 9). The INMAS program is the lowest level of improvement under consideration.
Table 7 summarizes the activities at each ISM Project site.
33 ...... , - --- I....
Figure 8. The Ridi Bendi Ela Scheme in Kurunegala District, Sri Lanka. Figure 9. The Hakwatuna Oya Irrigation Scheme in Kurunegala District, Sri Lanka. ~Scale
1 I/2 0 1 2 miles
1 1/2' 0 1 2 3 kilometers
~IRRIGATED LANDS
.. ...iil~iiii~l.."...... :......
::"...... ::i~~~i ii~~~.....
...... i~iiii ::::::....:.:::...... ::::...... - ..... _---_- -- -,
.. .::::;......
1..:...... ::,, ...... "e e vo
......
...... i~::i ii
......
7b- _ ...... :.
......
...... ,o ... . o,...... o...... ,
...... :::::::':!:~~ .:ii~i~iiiiiiiiiiiiiii ~......
35 Table 7. Summary of Project Activities
Irrigation Scheme Operations & Maintenance Farmers' Financial Monitoring & Training Research Organizations Manaqement Evaluation
Gal OC.'a Left Bank Daily Pragmatic* x x x x x
Gal Oya Right Bank Weekly Pragmatic x x x x x
Parakrama Samudra Weekly ESI + PMN** x x x x x
Minneriya (Gal Amuna) Weekly ESI + PMN x x x x x
Kaudulla Weekly ESI + PMN x x x x x
Ridi Bendi Ela Weekly x x x x x
Hakwatuna Oya x
* Pragmatic rehabilitation -s being completed under the Water Management Project (383-0057). ** ESI is essential structural improvements for water control and measurement. PMN is priority maintenance needs for structural upgrading beyond ESI to improve irrigation headworks and channels. III. FINANCIAL PLAN AND ANALYSIS
A. Financial Plan
The estimated cost of the ISM Project is $29.5 million with AID contributing $19.9 million and the Government of Sri Lanka con tributing the local currency equivalent of $9.6 million (Table 8). AID will supply a loan of $12.5 million and a grant of $7.4 million. Foreign exchange would total $11.7 million while local currency amounts to $17.8 million.
Annual expenditures for the overall project are larger during the beginning years, and they declino through the life of the project (Table 9). USAID's contribution follows the same pattern. Large expenditures are made the first year because of commodity purchases. However, the GSL contributes more in 1987, 1988 and 1989. This corre lates with the GSL's reduced capital funding obligations for the Mahaweli Project, allowing the GSL to more easily finance the present project. Part uf the GSL personnel budget $12 million) will increase the O&M staff at the Gal Oya Irri63tion Project.
The AID grant will primarily finance research activities and the long-term and short-term consultants who provide technical assistance. The AID loan will fund commodities, overseas training, contracted personnel and construction. Construction will be financed on a 60% reimbursable basis to the GSL. The GSL would contract per sonnel to act as institutional organizers (1O's) and the GSL and AID will need to negotiate a percentage contribution. The commodities include small construction, transportation, and radio equipment, as well as micro-computers.
Annex C includes a detailed breakdown of project costs and cost allocation by project component.
B. Financial Analysis
Analyzing the profitability of a typical paddy farm through examining yield, costs and net returns with and without the ISM Project will show the financial effect on individual participants. Analyzing fiscal year budgets and comparing funding levels with the requirements of ISM Project will assess the impacts on the implement ing agency and the GSL.
37 Table 8. Summary Cost Estimate and Financial Plan
AID GSLTOA SOURCE Loan Grant TOTAL FX LC FX LC LC FX LC Total Technical Assistance 5,640 5,640 5,640 Commodities 3,833 79 3,833 79 3,912 Training 580 1,050 580 1,050 1,630 Construction 5,316 3,544 8,860 8,860 Research/Studies 190 45 600 750 45 1,540 1,585 co GSL Personnel 2,130 2,130 2,130 GSL Personnel (Contract 10's) 673 225 898 898 Inflation* 118 607 485 50 1,143 603 1,800 2,403 Contingency** 452 625 569 60 770 1,021 1,455 2,476
Subtotals 4,983 7,490 6,739 710
TOTALS 12,473 7,449 9,612 11,722 17,812 29,534 * Inflation for local currency is estimated to be 15% and for foreign currency 5% compounded. ** ContinQency is estimated to be 10%. FX - Foreign currency LC - Local currency Table 9. Percent Expenditure of ISM Project Funds by Year
Year AID GSL TOTAL Grant Loan
1986 27 42 16 30 1987 28 18 23 22 1988 15 16 23 18 1989 15 14 21 16 1 5 _1Q_ 17 14
Total 10C% 100% 100% 100%
1. Private Profitability
Farmer participation will affect the success of the project. For farmers to participate, they must have motivation and incentives.
Table 10 summarizes cash flows for a representative three-acre farm based on detailed cost and returns information (Annex D). The private profitability analysis is based on capacity to pay water fees for O&M and incentive to contribute toward improved operation and maintenance of the system.
The farmer pays O&M fees of Rs. 100 per acre per year. Net returns to water is an indicator of the farmers' capacity to pay irrigation fees, since net returns to water is the amount remaining for irrigation water payments after paying for all other factors of production. Under present conditions, it is estimated that farmers could pay the Rs. 100 per acre O&M fee and still have approximately Rs. 2,800 left for a family living allowance. In reality, the farmer would have approximately Rs. 5,400 for a family living allowance since no cash outlay is :aade for family labor.
Without the project, the irrigation payment capacity would increase to Rs. 4,940 per acre by the 20th year. On-farm income is supplemented by farmers laboring on other farms during peak seasons. In addition, cultivating family gardens generates non-cash income. Therefore, a typical farmer can pay O&M fees of Rs. 100 per acre and can meet reasonable increases in the future. The farmer's capacity to pay should be even greater with the project.
Having established the existence of sufficient payment capacity, the focus is on farmer ir.centives. The farmer's net returns and cash position increase whether there is a project or not. However, without the project the rate increases 5%; with the Project, the rate increases 10% annually. Per capita income also increases af
39 Table 10. Summary Budget for Three-Acre Farm (1984 Base Prices in Rs.)*
Year 1 Year 5 Year 10 Year 15 Year 20
Cost of Production 25,782 28,464 31,427 34,698 38,310 Gross Value of Production Without ISM 28,874 33,125 38,400 43,911 49,314 With ISM 28,874 36,851 46,857 57,538 70,210 Net Returns to Water Without ISM 3,092 4,661 6,973 9,213 11,004 With ISM 3,092 8,387 15,430 22,840 31,900
Net Returns to Water and Family Labor Without ISM 5,665 7,502 10,109 12,676 14,827 With ISM 5,665 11,228 18,566 26,303 35,723
Estimated On-Farm Per Capita Income** Without ISM 1,133 1,500 2,022 2,535 2,965 (45)*** (60) (81) (101) (119) With ISM 1,133 2,246 3,713 5,261 7,145 (45) (90) (149) (210) (286) *From Annex D **Assumes 5 members/family, and is calculated on the net returns to water and family labor (net cash position) * ) - U.S. dollars at the exchange rate of Rs. 25.00 to U.S. $1.Ou the same rates of 5% and 10%, respectively. When farmers see that improved operation and maintenance of the system enhances their individual earning power (at twice the rate) through increasee, crop yields, farmers should view the O&M fee as a small investment with a large payoff and should be less reluctant to pay the water charge.
2. Budget Analysis
The Ministry of Lands and Land Development will implement the project, assign duties to various GSL agencies, and monitor project progress. The Irrigation Department and the Irrigation Management Division will implement activities. Created in March 1984, the IMD will receive its f.,st annual budget in 1985. Therefore, the team analy:-ad the MLLD and Irrigation Department budgets for the pioject (Table 11). The Irrigation Departent annual budget has consistently been around 60% of the total MLLD annual budget for many years.
Table 11. Annual Budgets for the MLLD and the Irrigation Department from 1982 to 1984 (Millions of Rs.)
1982 1983* 1984
MLLD Recurrent Expenditure 263.1 330.5 337.2 Capital Expenditure 752.9 853.9 947.3 Total 1,016.0 1,184.4 1,284.5
Irrigation Department Recurrent Expenditure 115.2 142.6 148.2 Capital Expenditure _7 610.0 Total 712.5 752.6 773.9
*Esti mates
How funds are allocated within the Irrigation Deparoment helps determine the financial sustainability of the present project. In the 1984 budget, 38 major irrigation-related projects received funding. Thirty-three projects are in gravity irrigation and account for 94% of the 1984 capital expenditures. Four projects account for 83% of the total capital expenditures (Table 12).
All of these projects include reimbursements which must be taken out to determine what the annual budget requires from the
41 Irrigation Department. The 1984 budget required Rs. 143.0 million (28% of the total) from the Irrigation Department. Therefore, the Irrigation Department donated approximately U.S. $5.8 million to these four projects in 1984.
Table 12. Major Irrigation Projects in the 1984 Irrigation Department Budget
Project Rs. (millions) Donors
Inginimitiya 60.0 Japan
Village Irrigation Rehabi I Itati on 80.0 IDA
Kirindioya Irrigation ADB, IFAD, & Settlement 280.0 KFW
Gal Oya Left Bank 100.0 USAID
Total 520.0
All four projects should be completed before the 1986 budget year, the beginning of the present project. Presently, the only other major project receiving funding is the Major Irrigation Rehabilitation Project supported by IDA/World Bank.
Annual GSL funding requirements for the Major Irrigation Rehabilitation Project are estimated as $1.1 million (U.S.) during 1985-90. The ISM Project will require annually an average of U.S. $1.9 million from 1986 to 1990, making the Irrigation Department's funding burden U.S. $9.6 million. Based on past performance, the Irrigation Department should be able to meet the annual project fund ing requirements.
In addition, the funds needed for the Accelerated Mahaweli Development Program are expected to decline from 35% of total public investment in 1983 to around 2Z% in 1987. This will release GSL's funds and s-aff in time to support the ISM Project.
For 1985, the total MLLD request is Rs. 1.54 billion, of which 48% is requested by the Irrigation Department and 12% by the IMD (Table 13). The total combined ID/IMD request amounts to 60% of the proposed MLLD budget. Even though the Irrigation Department's propor
42 tion has decreased, the combined ID/IMD share is close to the historic average of the Irrigation Department. Evidently, IMD will receive budget allocations formerly destined for the Irrigation Department. Since IMD was created out of Irrigation Department, there should be little financial difficulty in sustaining the Project.
Table 13. 1985 Budget Requests by the MLLD, the ID and the IMD (Millions of Rs.)
MLLD ID IMD
Recurrent Expenditure 276.8 61.2 2.5
Capital Expenditure 1,265.8 660.6 177.45
Total 1985 Request 1,542.6 730.8 179.95
Percentage of MLLD Budget (48%) (12%)
43 IV. IMPLEMENTATION PLAN
A. Implementation Schedule
The Implementation Schedule for the ISM Project involves mission pre-project activities undertaken to bridge the Water Management Project (383-0057) and the ISM Project (Table 14). Table 15 outlines the ISM Project activities. Pre-project activities cover the technical assistance from July 1, 1984 to June 30, 1986 provided by the Water Management Synthesis Project through Colorado State University, consultants, and an aerial surveys contractor.
B. Pre-Project Activities
The pre-project activities will provide for a cost effective and timely start of the ISM Project. The pre-project activities include aerial photographic mapping; monitoring, evaluation and feedback; operations and maintenance; farmer organization; project management; and financial management.
1. Aerial Photographic Mapping
Aerial photographic maps help plan structural improvements, as well as develop management strategies in O&M. USAID/Colombo should allocate funds and contract with a reputable international firm to do the aerial photography by March 31, 1985. Then, rectified aerial photographs with a 1:5000 scale and 50 centimeter contour intervals for the Polonnaruwa sites could be delivered by December 31, 1985. The Gal Oya Scheme and Kuiunegala maps should be made available by March 31, 1985. International bids are necessary because the Survey Departbnent cannot complete the photography in one year. The three district sites cover 200,000 acres, and at current rates for interria tional firms, it would cost $1 million to photograph.
2. Monitoring, Evaluation and Feedback
The technical assistance contract with the Water Management Synthesis Project provides a long-term water management specialist who will strengthen institutional capability within the Water Management Cell of the Ministry of Lands and Land Development, study irrigation schemes scheduled for improvement, and assist in establishing a monitoring system to report irrigated crop production and water use informati i to prepare for the Irrigation Systems Management Project. Creating d Water Management Cell will enable the MLLD to monitor,
45 Table 14. Pre-Project Activities
Approx. Action Responsibility Completion Date
PID prepared GSL/USAID Dec. 31, 1983
Draft project design report GSL/WMS/USAID Nov. 15, 1984
Project paper completed USAID/GSL Apr. 15, 1984
Project paper approved USAID Aug. 15, 1984
Request bids for aerial photography USAID/AIDW Jan. 31, 1985
Aerial photography contract signed GSL/contractor Feb. 28, 1985
Aerial photography flown GSL/contractor Mar. 31, 1985
Monitoring teams trained WMS/GSL Dec. 31, 1985
Project manager trainers trained WMS/SLIDA Dec. 31, 1985
Financial management trainers trained WMS/SLIDA Dec. 31, 1985
10 trainers trained ARTI/WMS Jun. 30, 1985
GITI trainers trained CSU/WMS/GSL June to May annually
PASE trainers trained CSU/WMS/GSL June to May annual ly
MEF systems and procedures established consultant/GSL/UM Jun. 30, 1985
Training materials developed for MEF consultant/GSL/UM Sep. 30, 1985
Project m.nagers training materials upgraded consultant/GSL/PASE Sep. 30, 1985
Financial management systems and procedures established consultant/GSL/SLIDA Jun. 30, 1985 Financial management training materials developed consultant/GSL/SLIDA Sep. 30, 1985
46 Table 14. (continued)
Approx. Action Responsibility Completion Date
10 training manuals upgraded consultant/GSL/ARTI Jun. 30, 1985
I-ining materials developed for ISM orientation courses at GITI GSL/consultant Dec. 31, 1985
Rectified aerial photography delivered for Polonnaruwa sites at 1:5000 scale contractor/GSL Dec. 31, 1985
Aerial photography (same specs) available at Gal Oya contractor/GSL Mar. 31, 1986
AIDW - AID/Washington ARTI - Agrarian Research and Training Institute CSU - Colorado State University GITI - Galgamuwa Irrigation Training Institute GSL - Government of Sri Lanka T0 - Institutional organizer ISM - Irrigation Systems Management MEF - Monitoring, evaluation and feedback PASE - Project for Advancing Settlement Expertise PID - Project identification document SLIDA - Sri Lanka Institute of Development Administration UM - University of Moratuwa USAID - U.S. Agency for International Development WMS - Water Management Synthesis Project
47 Table 15. ISM Project Activities
Approx. Action Responsibility Completion Date
Loan/grant author;zatlon AIDW Sep. I, 1985
Project agreement signed USAID/GSL Oct. 1, 1985
Expression of interest submitted AIDW Oct. 15, 1985 RFP's for technical assistance consultancy issued USAID/GSL/AIDW Nov. 15, 1985
Initial conditions precedent met Dec. 15, 1985
IFB's for equipment and commodities USAID/AIDW Dec. 31, 1985 Closing date for technical assistance proposals USAID/GSL Dec. 31, 1985 Rectified aerial photography delivered to three district sites GSL/contractor/USAID Jan. 31, 1986 Technical assistance contractor selection GSL/USAID Jan. 31, 1986
Bid closing date for equipment USAID/GSL Feb. 28, 1986
Contracts awarded for equipment GSL/USAID Mar. 15, 1986 Local contract awarded for institu tional organizer training GSL/ARTI/USAID Mar. 15, 1986 Technical assistance consultancy contract negotiated and signed GSL/contractor/USAID Mar. 15, 1986
Initial consultants arrive consultants May 15, 1986
GITI trainers trained WMS/GSL May 31, 1986 PASE trainers trained WMS/GSL May 31, 1986
Institutional organizers training begins ARTI/consultants Jun. 1, 1986
48 Table 15. (continued)
Approx. Action Responsibility Completion Date
Work begins at Polonnaruwa on maintenance survey and operations survey GSL/consultants Jun. 1, 1986
Local contracts awarded for farmer management training GSL/SLIDA/USAID Jun. J, 1986
PASE orientation and GITI discharge rating training initiated GSL/USAID Jun. 1, 1986
Local contracts awarded for research GSL/IIMI/ARTI/USAID Jun. 30, 1986
Local contracts awarded for training on micro-computer for operations, monitoring, and financial management GSL/UM/UP/SLIDA/USAID Jun. 30, 1986
Institutional organizers fielded at Polonnaruwa GSL/consultants Jul. 15, 1986
Essential struct'irl improvements for floi measu, ,nt and control GSL/contractor Jul. 3)., 1986
Maintenance plan developed for each Polonnaruwa tank scheme GSL/contractor Jul. 31, 1986 Financial management systems and procedures computerized GSL/contractor/SLIDA Jul. 31, 1986
MEF system computerized GSL/contractor/SLIDA Aug. 31, 1986
Life of project and second annual workplan submitted GSL/contractor Aug. 31, 1986
First annual report submitted GSL/contractor Aug. 31, 1986
Annual project impact assess. review and implementation plans updated GSL/contractor/USAID Nov. 15, 1986
Priority maintenance needs imple mented GSL/contractor Nov. 1, 1986
49 Table 15. (continued)
Approx. Action Responsibility Completion Date MEF training for ID staff at University of Moratuwa completed GITI/GSL Dec. 1, 1986
PM training completed at PASE PASE/GSL Dec. 15, 1986
O&M training for IE's, TAT's and WM's completed at/by GITI GITI/GSL
FM training completed by SLIDA SLIDA/GSL Jan. 31, 1987
Scheme operational plans developed for 4 Polonnaruwa sites system operational model GSL/contractor Mar. 31, 1987
Micro-computer system operational model training completed at University of Peradeniya UP/GSL Apr. 30, 1987
MEF system implemented on all 9 project sites GSL/contractor May 15, 1987
GITI trainers trained WMS/GSL May 31, 1987
PASE trainers trained WMS/GSL May 31, 1987
Research contract annual reports submitted and reviewed SSL/contractor/USAID Jun. 30, 1987
Second batch of IO's trained ARTI/GSL Jul. 31, 1987
Second batch of IO's fielded GSL/contractor Aug. 1, 1987
First batch of IO's density reduced to Phase II; field-channels are all functional GSL/contractor Aug. 31, 1987
Financial management system for farmer organizations prepared GSL/contractor Aug. 31, 1987
Second annual report and third annual workplan submitted and reviewed GSL/contractor Aug. 31, 1987
50 Table 15. (continued)
Approx. Action Responsibility Completion Date
Second annual project impact assessment review held and implementation plans updated GSL/contractor/USAID Nov. 15, 1987
Annual in-service MEF training for ID staff by UM completed at 9 project sites GITI/GSL Dec. 1, 1987
Annual in-service PM training at PASE PASE/GSL Dec. 15, 1987
Annual in-service training for IE's, TATts and WS's completed at GITI GITI/GSL Dec. 31, 1987
Annual in-service FM training by SLIDA SLIDA/GSL Jan. 31, 1988
In-depth mid-project status report prepared GSL/contractor Mar. 31, 1988
Operational computer model developed and calibrated for 4 Polonnaruwa schemes GSL/contractor Apr. 15, 1988
Refined maintenence plan completed GSL/contractor May 15, 1988
Operational model/micro-computer training for IE's completed separately at all 9 project sites UP/GSL May 31, 1988
GITI trainers trained WMS/GSL May 31, 1988
PASE trainers trained WMS/GSL May 31, 1988
In-depth mid-project status evaluation completed GSL/USAID/AIDW Jun. 1, 1988
Financial research report submitted on Irrigation Management Research Information Center ARTI/IMRIC Jun. 30, 1988
51 Table 1H. (continued)
Approx. Action Responsibility Completion Date Final research reports submitted on quantifying irrigation loss UM/GSL and UP/GSL Jun. 30, 1988 MEF system produces seasonal reports on all 9 project sites GSL/contractor Jun. 30, 1988 Research contract annual reports submitted and reviewed GSL/contractor/USAID Jun. 30, 1988
Third batch of IO's trained ARTI/GSL Jul. 31, 1988
Third batch of IO's fielded GSL/contractor Aug. 1, 1988 Second batch of 10 density reduced to Phase II with all field-channel orgs. functional and first batch 10 density reduced to Phase III GSL/contractor Aug. 31, 1988 Improved budgeting and financial management system interfacing with scheme O&M and fee collected GSL/contractor Sep. 1, 1988 All equipment for project in place and operational GSL/USAID Sep. 1, 1988 Replicable project activities begin operation in other areas of Sri Lanka GSL Sep. 1, 1988 Third annual report submitted GSL/contractor Avg. 31, 1988 Fourth annual workplan submitted and reviewed GSL/contractor Aug. 31, 1988 Third annual project impact assess ment review held and implemen tation plans updated GSL/contractor/USAID Nov. 15, 1988 Annual in-service micro-computer based MEF training for ID staff at all 9 project sites completed UM/GSL Dec. 1, 1988
52 Table 15. (continued)
Approx. Action Responsibility Completion Date Annual in-service project manager training completed at PASE PASE/GSL Dec. 15, 1988 Annual in-service O&M training for IE's, TAT's and WS's completed at GITI GITI/GSL Dec. 31, 1988 Annual in-service FM training completed at 9 project sites SLIDA/GSL Jan. 31, 1989 Detailed water loss data collection for refinement of models for 4 Polonnaruwa schemes GSL/contractor Mar. 15, 1989 Refined water delivery schedule implemented in 4 Polonnaruwa schemes GSL/contractor Apr. 15, 1989
Priority maintenance needs completed GSL/contractor May 15, 1989 Micro-computer operational model training for IE's completed separately at all 9 project sites UP/GSL May 31, 1989
GITI trainers trained WMS/GSL May 31, 1989 Final research report submitted on alternative irrigation organiza tional strategies, methods and intensity ARTI Jun. 1, 1989 MEF system refined to produce seasonal and annual reports on 9 sites GSL/contractor Jun. 30, 1989 Research contract annual reports
submitted and reviewed GSL/contractor/USAID Jun. 30, 1989 Fourth batch of lO's trained ARTI/GSL Jul. 31, 1989
Fourth batch of IO's fielded GSL/contractor Aug. 1, 1989
53 Table 15. (continued)
Approx. Action Responsibility Completion Date Third batch of 10 density reduced to Phase II with all field-channel orgs. functional GSL/contractor Aug. 31, 1989 Second batch 10 density reduced to Phase III with all distributary channel groups tunctioning GSL/contractor Aug. 31, 1989 Farmer representatives training on basic record-keeping techniques completed GSL/consultant Aug. 31, 1989 Field-channel organizations opera tional at all 9 project sites GSL Aug. 31, 1989 Fourth annual report submitted GSL/contractor Aug. 31, 1989
Fifth annual workplan submitted and reviewed GSL/contractor Aug. 31, 19P9 Fourth annual project impact assessment held and implementation plans updated GSL/contractor/USAID Nov. 15, 1989 Annual in-service micro-computer MEF training for ID staff at 9 project sites completed UMI/GSL Dec. I, 1989 Annual in-service project manager training completed at PASE PASE/GSL Dec. 15, 1989 Annual in-service O&M training for IE's, TAT's and WS's completed at GITI GITI/GSL Dec. 31, 1989 Annual in-service FM training by • LIDA completed at 9 project site. SLIDA/GSL Jan. 31, 1990 Irrigation scheme operational improvements plan completed at 4 Polonnaruwa schemes GSL/contractor Mar. 15, 1990
54 Table 15. (continued)
Approx. Action Responsibility Completion Date
Preventive maintenance plan com pleted at 4 Polonnaruwa schemes GSL/contractor Apr. 15, 190 Micro-computer operational model training for IE's completed separately at al 9 project sites UP May 31, 1990 Draft final research report sub mitted on irrigation service fee policy issues IIMI Jun. 30, 1990
GITI trainers trained WMS/GSL May 31, 1990 Draft final research report sub mitted on performance of several investment combinations in irrigation ARTI/WMS Jun. 30, 1990 Draft final research report sub mitted on indigenous management lessons from Sri Lanka's Tank Irrigation Schemes ARTI/SLIDA Jun. 30, 1990 Final report: intensity of personnel assignment ARTI/WMS Jul. 30, 1990 Final report: daily operations model WMS/GSL Jul. 30, 1990 Fourth batch 10 density reduced to Phase II with all field-channel orgs. functional GSL/contractor Aug. 31, 1990 Third batch 10 density reduced to Phase II with all distributary chanrel groups f,.nctioning GSL/contractor Aug. 31, 1990 Final report: irrigation fee policies IIMI Aug. 31, 1990 Final report: investment combinations ARTI/GSL Aug. 31, 1990
55 Table 15. (continued)
Approx. Action Responsibility Completion Date
Final report: indigenous management lessons research ARTI/SLIDA Aug. 31, 1990
Annual report submitted GSl./contractor Aug. 31, 1990
Improved accountability achieved through institutionalized reporting system: O&M fees, farmers' bookkeeping, reports GSL/contractor Sep. 30, 1990 Distributary-channel organizations functional at all 9 project sites Sep. 30, 1990
Final report submitted GSL/contractor Nov. 1, 1990
Fifth annual project impact assessment reviewed GSL/contractor/USAID Nov. 15, 1990
Irrigation system management project officially concludes GSL/contractor/AIDW Dec. 31, 1990
AIDW - AID Washington FM - Financial management ID - Irrigation Department IE - Irrigation engineer IIMI - International Irrigation Management Institute IMRIC - Irrigation Management Research Information Center MEF - Monitoring, evaluation and feedback O&M - Operations and maintenance PM - Project manager RFP - Request for Proposal TA - Technical assistance TAT - Technical assistant UM - University of Moratuwa UP - University of Peradeniya WMS - Water Management Synthesis Project WS - Work supervisor
56 evaluate and report the performance of the irrigation schemes. The Water Management Cell will accomplish three prerequisite functions before initial use of the ISM Project funds in January 1986 after the conditions precedent have been met: establishing the monitoring systems and procedures; training people to collect, analyze and report the data and lessons learned; and developing a point for future com parison and for beginning to design improvements.
Establishing a monitoring, evaluation and feedback system in the Ministry of Lands and Land Development requires considerable planning; a management specialist in monitoring, evaluation and feed back systems and procedures should consult for three months in 1985 with the designated MLLD Project Director and Deputy Director for MEF. The consultant from Water Management Synthesis Project could substan tively affect the ISM Project and help to institute the MEF management concepts.
With the water management specialist and a Water Management Cell in IMD, three additional USAID supported actions would help the ISM Project in 1986: working with the MLLD's Water Management Cell to establish monitoring, evaluation and feedback systems and procedures from field to headquarters; having a university with proven expertise in monitoring and evaluation and microcomputer training develop train ing materials; and helping a Sri Lankan institution to prepare practi cal microcomputer applications and training materials.
3. Operations and Maintenance
The training capacity and capability developed in the Irrigation Department at the Galgamuwa Irrigation Training Institute (GITI) under the Water Management Project will aid the start of the ISM Project. GITI's capability and capacity should not be neglected as the Water Managc:ent Project.wids down and before the ISM Project begins. Some GITI staff members may need replacement because of attrition and rotation of assignments. Some experienced staff and new junior staff will need exposure to and training in the implemention programs of other countries. Therefore, USAID-supported overseas training and GSL support of trainers at GITI and ARTI should continue in late 1984 through 1985 to bridge the Water Management and the ISM Projects. Also, GITI should receive technical assistance to plan the writing and publication of necessary technical training manuals needed for O&M during the life of the project.
4. Farmer Organization
ARTI's training capacity and capability should L, further assisted in the intpeim before the ISM Pro~lect becomes active. USAID assistance du:i'Ing 1985 can provide from Water Management Synthesis Project a two-month consultancy to help upgrade 10 training manuals
57 and tours for the 10 training staff committed to the ISM Project so they can visit similar programs at the National Irrigation Administration in the Philippines.
Project Management
PASE will need assistance to support applied management research on existing projects in the Irrigation Department; case studies on implementing and managing an improvement program oT recur rent operations and maintenance activities; and materials for training project managers and irrigation eng1ieers. Additional assistance would help PASE to introduce micro-computers for project management, increase library acquisitions and arrange study tours in project management and irrigation system management. The PASE staff could visit similar programs at the Asian Institute of Management, the National Irrigation Administration, and the executive development program of the Salt River Project in Phoonix, Arizona.
Support for PASE could be accomplished through a contract with the Water Management Synthesis Project or wlth the Asian Institute of Management. Initiating field research, writiq management case studies, and developing training materials could be accomplished by one individual consultant during three appropriately spaced TDY's in 1985 that would take three months total.
Financial Management
Assistance to the SLIDA, Division of Financial Management, should emphasize developing financial management systems and proce dures and applying micro-computers to financial management for the ISM Project. USAID should provide one financial management consultant in 1985 for six months to collect field financial records for cost :tudies, establish systems and procedures for the financial management syztem, and develop the micro-computer financial management procedures and training materials in collaboration with the assigned training perso,,nel of the Financial Management Division of SLIDA.
C. Project Activities
Actual project activities would begin with approval of the project paper and the consequent loan/grant authorization by September 1, 1985. The project agreement should be signed by October 1, 1985 with the conditions precedent met by December 15, 1985. With expeditious effort, the technical assistance contract could be signed by March 15, 1986, and the first consultants could arrive by May 15, 1986. Expressions of interest would be required by October 15, Requests for Proposal issued by November 15, and technical assistance proposals closed on December 31, 1985, to allow contractor selection by January 31, 1986. The Ministry of Lands and Land Development
58 representing the Government of Sri Lanka would select and contract for consultants. Grant funds provided by this project, with a portion of local technical assistance costs borne by the GSL, would finance the consultants.
The GSL and USAID anticipate a two-year, staged procurement of construction equipment, vehicles, micro-computers and other com modities to parallel the start of the project. IFB's would be issued by December 31, 1985 with bid closing for equipment and commodities by February 28, 1986 and contracts awarded for equipment by March 15, 1986. Micro-computer equip~ment should arrive by June 30, 1986 so that local institutes and universities can use the equipment to begin training. The first construction equipment should arrive by October, 1986 so that the priority maintenance needs can be implemented begin ning November 1, 1986. Acquiring vhicles for field use and obtaining equipment gradually should allow the Irrigation Department, IMD and training institutes to recruit needed personnel.
The implementation schedule contains the respective threshold to be completed each year of the project in operations and maintenance; monitoring, evaluation and feedback; farmer organization; financial management; training; and research. The year-end goals are preparing annual reports and next year's workplans, assessing the annual project impacts, and updating workplans. Project assessment requires in-depth mid-project and final project reports. Project funds, through contracts with local institutions, will finance irriga tion fee policy and alternative investment performance research.
1. Description of Procurement
To facilitate the procurement of all commodities, AID will follow usual IFB procedures with tenders being issued and evaluated. AID/W will assist the procurement team and approve awards. The Ministry of Lands and Land Development and the Government of Sri Lanka will directly contract technical assistance. The awards for com modities and technical assistance are planned for March, 1986 in Washington, D.C. through the Sri Lanka Embassy.
2. GSL Project Monitoring and Implementation
A project director and four deputy project directors, each focusing on major program elements, will implement the project through tho Irrigation Management Division and the Irrigation Department. The four deputy directors will be responsible for farmer organizations; operations and maintenance; financial management; and monitoring, evaluation and feedback elements of the project. The Irrigation Management Olvision will implement the program on Integrated Management of Major Irrigation Schemes, and the Irrigation Department
59 will oversee operations and maintenance improvements. A senior level steering committee within the MLLD will direct overall policy, coor dinate assistance to the Y"AS program, and guide the awarding of contracts for training and research outside of MLLD. The Steering Committee will use monitoring, evaluation and feedback to guide seasonal and annual reviews cf performance. The Project Director may require discretionary funding to form a socio-technical advisory committee of Sri Lankan experts in irrigation# agriculture, sociology, anthropology, communications and economics. These experts would not represent any government organization, institutes, or universities, but would independently advise the Director on matters of policy impact and training and rese',rch needs.
Locally, the government agent would chair the District Advisory Committee's sub-committee on agricultural development that oversees the INMAS program. Monitoring information will be aggregated within the projects, the districts, and the national headquarters of MLLD. Evaluation at each level would be accompanied by appropriate action and feedback in the system.
3. USAID Project Monitoring
The USAID Mission has a Mahaweli and Water Resources Division that will monitor and assist with implementing the ISM Project. This division has four direct-hire engineers and two Sri Lanka water management specialists who will provide technical input to the project.
The Mission will probably require short-term consultants who are specialists in systems and procedures for financial management; monitoring, evaluation and feedback; and training program development up to January 1, 1986. The consultants .iould help the MLLD establish the financial management program and the MEF program in the Ministry.
60 V. PROCUREMENT PLAN
A. Procurement Responsibilities
All AID-funded procurement will be the responsibility of the prime technical assistance contractor, with assistance as needed from the USAID commodity procurement specialist and the Regional Commodities Management Office (RCMO) in Bangkok, Thailand. In view of the number of anticipated purchases in the U.S., the technical assis tance contractor should select a professional U.S. procurement serv ices agent (PSA) to buy equipment in the U.S. In such event, the contractor will negotiate and conclude, subject to USAID/RCMO approval, a procurement services contract with the selected PSA to be signed as soon as possible following signature of the technical assis tance contract. The contractor will be made aware of AID's regula tions governing PSA selection. The contractor must monitor the PSA contract, with every reasonable assistance from USAID. The Ministry of Lands and Land Development wll use GSL funds to purchase equipment locally, excluding vehicles, with assistance from USAID/RCMO personnel as required.
B. Commodity List
Table 16 lists estimated costs for equipment and commodity needs and their respective components. Table 17 gives trso complete procurement list. All of the maintenance equipment is small and to be used to improve the irrigation headworks and channels served by the four project tanks in Polonnaruwa District. Construction equipment purchased under the Water Management Project will be used to pragmati cally rehabilitate the Gal Oya Right Bank Canal system under the ISM Project. The radio equipment will be used for operations at the Gal Oya Irrigation Project and the four tank irrigation schemes in Polonnaruwa District. Project funds will purchase transportation for all components except research. Jeeps are listed, but the exact mix of Jeeps and pickups should be established early in the project. Engineering field equipment is being purchased for research and opera tions and maintenance, and the project is buying audio-visual equip ment for some of the training centers. Micro-computers and air conditioners will be installed at each operations center, for the financial management component, and at two of the training centers. Library acquisitiocis will go to the four training centers.
As soon as possible, the contractor and MLLD will prepare a detailed commodities list, which should include a breakdoan of annual requirements, probable purchase source, estimated costs, and plans for utilization. USAID will review and approve lists of AID-funded com
61 modities prior to ordering. The Project will purchase most com modities during the first two years, with 90% of the commodities bought the first year.
Table 16. Summary of Commodity Costs by Component (Annex C)
Component Cost ($1,0001s)
Operations and Maintenance (C-3) 3,466
Farmors' ,rganizations (C-5) 95
Financial Management (C-6) 120
Monitoring, Evaluation and Feedback (C-7) 70
Training capacity Ehohancem-int (C-9) 149
Research (C-10) 12
TOTAL 3,912
C. Source of Procurements
The authorized sources of procurement for this project are Code 941 and the host country. Most purchases can be made in these countries, except vehicles and video equipment and accessories pur chased from Code 935 countries (probably Japan).
Consultants' vehicles need waivers if funded by AID. A waiver for video equipment (not available in Code 941 countries) will be prepared at purchase time following a detailed examination of project needs. Any other Code 935 procurements will be made case by case and only if authorized by USAID in accordance with the Agency's waiver requirements.
The vehicle waiver is justified because right-hand-drive, crew-cab pickup trucks are not available in the U.S. A right-hand, four-wheel-drive, utility vehicle is manufactured in the U.S. However, It is an enclosed station wagon-type vehicle which has roughly one-third the cargo capacity of a pickup truck. Furthermore, Sri Lanka lacks spare parts and the service capability for these
62 Table 17. Procurement List
Item O&M FO FM MEF TCE RES Total Costs ($1,O00s) No. Unit Total Maintenance Equipment Front-end loader, 45 hp 6 6 57 342 Vibratory roller, hand 6 6 7.8 46.8 Backhoe, large, 80 hp 2 2 65 130 Backhoe, small, 50 hp 6 6 45 270 Concrete mixer, 5 hp 6 6 7.8 46.8 Farm tractor-traifl;- 45 hp 32 32 11 352 Tractor, 45 hp bowser 6 6 32.5 195 Crawler tractor, 100 hp 10 10 78 780 Low-bed trailer 4 4 15 60 Spare parts ($444.4) 444.4 Subtotal 2,665 Radio Equipment n Radio, base station 7 7 3.7 25.9 Radio, field station 26 26 3.7 96.2 Radio, CB (jeeps) 31 31 0.6 18.6 Walkie-talkies 175 175 0.2 35 Spare parts ($26.3) 26.3 Subtotal 202 Transportation 4-WD vehicles 2 2 13 26 Jeeps 31 1 1 2 2 37 10 370 Motorcycles 31 9 27 67 1.2 80.4 Bicycles 300 300 0.12 36 Spare parts ($52.8) ($2.2) ($1.6) ($7.6) ($5) 69.2 Subtotal 581.6 Table 17. (continued)
Item O&M FO FM MEF TCE RES Total Costs ($1,O00_s No. Unit Total Field/Office Fquipment Current meters 18 4 22 2 44 Theodolites 6 6 4 24 Levels 6 6 1.2 7.2 Level & equipment 2 2 2 4 Audio-visual training aids 2 2 9.2 18.4 Drafting equipment 2 2 2 4 Video recorder 4 4 0.8 3.2 Color TV 4 4 0.7 2.8 Photocopier 5 2 7 3.8 26.6 Typewriter 8 4 2 4 18 1.5 27 Air conditioner 14 2 16 1.2 19.2 Micro-computer 6 7 2 15 14 210 Library acquisitions 4 4 Y 28 Office furniture & equipment ($10) ($5) ($10) 25 Misc. small equipment ($20) 20 Subtotal 463.4 TOTAL 3,912 to adequately service the right-hand-drive vehicles now in country, thereby delaying projects for lengthy times. D. Method of Procurement
The design team recommends that the contractor observe the following guidelines: 1. Selection of PSA
eThe contractor will submit his technical assistance proposal and the name, qualifications, and experience of the PSA he wishes to employ. He should base his selection on offers solicited from qualified firms. (RCMO can provide a short list of such firms.)
oUSAID and the MLLD will approve the contract between the selected contractor and the PSA. (The RCMO can assist in the selec tion process and the preparation of the PSA contract.)
eSome contractors have procurement capabilities within their own organizations and may wish to act as their own PSAs. In such event, the contractors should submit a detailed statement of experienco and qualifications for doing the procurement work under AID regulations.
2. Purchasing
eUsing the approved, detailed, equipment lists, MLLD and the contractor will prepare instructions to cover procurements made by the PSA, with assistance from USAID.
*The contractor will issue instructions to the PSA on behalf of the MLLD, subject to USAID review and approval.
eIn cases where equipment will be procured on the basis of performance specifications, AID will authorize procurement through informal, competitive negotiations rather than formal invitation for bids.
eAll formal procurements not purchased through the PSA and having their source and origin in Code 899 countries will be done through formal, tender procedures. The MLLD and the contractor will prepare and act upon such documents with USAID's prior approval. MLLD will evaluate bids and issue awards arising from such tenders with USAID and contractor concurrence.
eThe contractor will use USAID's standard purchase order to make small-value purchases outside Sri Lanka. Purchase orders will be
65 issued after informal quotations have been evaluated and the lowest, most responsive bidder has been identified.
*In the case of local and shelf-item procurements, the MLLD or contractor will purchase the equipment, subject to advance USAID approval and waiver requirements in accordance with GSL procurement rules and AID policy.
*When required, the PSA will advertise for anticipated procurements. For procurement not handled by the PSA, edvertistng will be handled by the MLLD and the contractor in accordance with GSL procedures, subject to USAID approval.
*The PSA will submit evaluations of offers to the MLLD, the contractor, and USAID.
eContract awards for all purchases in the U.S. will be made within 30 days of receiving the PSA's evaluations, subject to sub sequent USAID and MLLD approval.
oThe MLLD will be responsible for proper receipt, port clearance, inland transpn-t, and expeditious utilization of items purchased.
E. Payment
The Controller, USAID/Colombo is responsible for payments. The Controller will periodically write Direct Letters of Commitment to pay for all purchases in the U.S. and for the PSA's fee. The Controller will pay for all non-U.S. purchases, except as noted below:
*In case of local procurement, upon presentation of sellerts invoice showing items, price and origin, with acknowledgement of receipt and MLLD's stock book number, signed by the MLLD's commodity procurement officer, and countersigned by tihe contractor.
emn casr of other non-U.S. procurement, upon presentation of pre-pai on-board bill of lading, copy of packing list, copy of supplier s invoice, certificate of source and origin, insurance certificate, supplier's certificate and agreement with AID for project cor.aodities (AID Form 1450-4), and voucher (Standard Form 1034).
66 F. Del ivery
All goods ordered by the PSA will be through FOB/rAS port of exit. The PSA will ship goods in accordance with AID regulations. The PSA must obtain "all risk," warehouse-to-warehouse, marine insurance in the amount of 12% of the C&F cost of the goods. Air freight shipments, when needed and/or more economical, must be approved in advance by USAID.
G. Marking
The MLLD is aware of AID's marking requirements and will instruct the prime contractor to enforce them in all proc:urement actions.
H. Receipt and Utilization
The MLLD must monitor arrivals and clear goods through Customs. Goods will oe received at central MLLD stores and inspected, distributed, and inventoried in accordance with the MLLD procedures developed through the ISM Project. The designated MLLD procurement officer(s) must inspect arrivals and prepare receiving reports. The M1ID officers should report shortages or damages to the PSA to file Insurance claims within 30 days of the equipment's arrival in country. The MLLD will ensure prompt and proper utilization including a'equate storage if needed, and will prepare and submit to USAID semi-annual utilization reports which should contain inventory numbers and equip mert location.
I. Procurement Schedule
Off-shore procurement will be done in two major installments, one in each of the first two years of the project as shown in the financial plan and the implementation plan. Target dates are keyed to the approvwl date of the project paper.
67 VI. TECHNICAL ANALYSIS
The Irrigation Systems Management Project is designed to improve the management of major irrigation schemeE, in Sri Lanka at all levels, from the farmer to the Ministry of Lands and Land Development. The ISM Project should improve the capacity of the Ministry of Lands and Land Development and farmers to respond to the diversified and changing agricultural needs of various parts of the irrigation systems and continuously maintain the irrigation systems so that expensive, periodic rehabilitation is unnecessary, The ISM Project will operate in conjunction with the GSL program for the Integrated Management of Major Irrigation Schemes (INMAS). Annex A describes INMAS.
The ISM Project has six components:
" A farmer organization program to allow farmers to assume greater O&M r sponsibilities on field channels and to create effec ve farmer representation on project committees.
" A program to improve operations and mairtenance through improving essential structures, determining priority main tenance needs, developing improved maintenance procedures, and improving operations with computer models.
" A financial management program that develops and uses accounting and financial reports on microcomputers to streamline and monitor O&M funding.
" A program to monitor, evaluate, and feed back information on irrigation system performance.
" Improvements in the Lrainialg capacity of several Sri Lanka institutions.
* Support for applied and policy research to fill information gaps and to investigate issues critical to the ISM Project and to irrigation management in Sri Lanka.
These six corn nents form a unified prog'am. Locally, sup porting structural improvement will result in repair and enlargement of irrigation channels as needed and provide management with needed water control. Essential improvements, together with information generated jy monitoring programs and improved O&M procedures will give Irrigation Department/IMD personnel far better control over the
69 selected irrigation systems. Graater control will make it possible to respond -ffectively to agricultural needs.
The farmer organization program and the improved O&M program focus on the individual scheme where farmers cooperate with IMD and Irrigation Department managers to make the system function better. The financial management program works at all levels to improve fund ing control and accountability so that national and district officials can effectively support local efforts. The monitoring, evaluation and feedback program collects and aggregates performance data for system managers, and district and national officials to use in evaluating programs and planning.
The training program supports efforts to develop capabilities for training nation. l, district, and local officers ;n the skills needed to implement the other Project components. Finally, applied and policy research explores relevant issues at all levels. Figure 10 shows these relationships.
National
•o".E 4-)C-
V0 a0 >'j 0) M -
(a V) 0 ( _V- M a) E in U t" o W District t- •~~~~ r-t-( V t C- CL.U 5- a) U 4-1 0
Scheme Improved Operations and Maintenance
Local Enhanced Farmer Organizations
Figure 10. Relationships Among ISM Components
70 A. Choice of Sites
Although the goals of the ISM project are national, it is essential that specific irrigation systems serve as sites for demonstrations, experiments and re.sarch. Different sites (irrigation schemes) must also be selected tc test various intensities of the improvement program.
INMAS represents the lowest level of implementation. The second level is INMAS plus ISM Project support for improving operation and maintenance systems (but without construction funds), creating monitoring systems, improving financial management, and helping to formulate and develop farmer organizations. The third level includes all of the above elements plus ISM Project funding for essential structural improvements and priority maintenance needs for the irriga tion channels and headworks. The highest le'el of investment, which is not included in the ISM Project, funds major rehabilitation as well as orerations and maintenance support and assistance for farmer organizations (construction cost of roughly Rs. 5,500 per acre served).
The USAID-funded Water Management Project already supports a fairly high investment program in the pragmatic rehabilitation of the Gal Oya Left Bank Canal system in Amparal District (ccnstruction cost of Rs. 2,700 per acrG s6ved). The ISM Project will continue to help expand local capacity to do operations, maintenance, monitoring, and farmer organization activities at the Gal Oya Left Bank Canal System,,
The ISM Project will support a lower intensity of improvement than either major or pragmatic rehabilitation; nanely essential struc tural improvement plus priority mainteiance needs (construction cost of Rs. 1,800 per acre served) which will apply to the four major irrigation schemes in Polonnaruwa District for the following reasons:
*The command areas of these systems have greatly expanded. Moreover, a preliminary inspection of the system reveals that major improvements are needed. Terefore, investing funds for structural upgrading is likely to bring major improvements to the systeins.
*These four systems form a single hydrological unit; all receive Mahaweli water and all drain into the same basin. Water saved in any part of these schemes can be used wherever it is most needed within the larger system.
*These four schemes include about 10% of the land under major irrigation systems in Sri Lanka. Therefore, an improvement in agricultural production here would affect the country.
71 *Discussions with district and local government officers reveal that they are eager to participate in project activities.
The Gal Oya Right Bank Canal system in Amparal District has been selected for pragmatic rehabilitation because:
*About 4,000 acres in the tail area receive no irrigation water, in part because the main channel lacks sufficient carrying capacity. Hence, structural upgrading should have a ma.jor impact.
oThe ISM Project will replicate the operations and main tenance procedures and the methods for improving relations with farmers used in the Gal Oya Left Bank Canal system because the same people manage hoth systems.
However, more than a third of the Gal Oya Right Bank system is planted in sugar (10,000 acres) under control of the Sri Lanka Sugar Corporation. To prevent the Sugar Corporation from capturing a dis proportionate share of the benefits, an agreement limiting the Sugar Corporation's control of water should be made condition precedent to any investment in the Gal Oya Right Bank Canal system.
A much lower intensity of improvement will be done in Ridi Bendi Ela Irrigation Scheme, an INMAS project serving 6,500 acres in the Kurunegala District.
The lowest intensity program, involving only monitoring and research will take place in Hakwatuna Oya Tank Irrigation Scheme serving 5,500 acres in Kurunegala District.
The ISM Project design is shown in Figure 11.
B. Farmers' Organizations
Farmer participation is needed at the ISM Project because:
*Sri Lankan law makes farmers collectively responsible for operating and maintaining channels serving less than 50 acres.
" Farmer participation reduces the labor costs needed for operation and maintenance.
cAFarmer participation can make the system more responsive to agricultural needs since farmers are usually the best judges of their own needs.
72 Figure 11. Irrigation System Management (ISM) Project Design
District rurunegala Polonnaruwa Apara Hak- Ridi- Site Ha Gal Oya Irrigation Project watna- Elaei taleGirl Parakraa tinneriya Kaudulla Right Bank Left Bank .6 A-re.ge 5,500 6,500 24,000 7,500 22p050 12,000 32,0e:) 65,000
Pragmatic
Rehabilitation Essential Structural ImprovemerZa (ESI) Pragmatic Priority Maintenance Needs (PHN) (PR) Fehabilitation
(Completed -rior to ISM)
el aU
a 3 a..
2 0 Managenent Implementation FamL-rOrganizations (FO's) Z Op2rations and Maintenance (O&M) - Financial Management (FW) Monitoring, Evaluation and Feedback (ME&F) Training Capacl', Enhancement (TCE) o Research (RES. U
: 0
0
II40W: Project Manager Systen OFarmer organizations can collect the new O&M fee; lowering the collection costs and perhaps increasing the percentage col lected.
*Farmer organizations can contract for maintenance work on the system. 'The INMAS program is based on farmer participation throughout the system. As part of the Water Management Project, the Agraria Research and Training Institute has promoted farmer participation in system management through a farmer organization program. Since 1981, ARTI has induced the formation of 300 field-channel farmer groups in Gal Oya Left Bank system. Each field-channel group consists of the farmers on a single field channel, usually about 15-20 farmers. The field-channel group is informal; the only formality is that each group selects a farmer representative from among its members. The field channel group distributes water to farmers along the field channel, organizes field-channel maintenance, and solves water disputes among farmers served by the field channel. The farmer representative is expected to call meetings, coordinate group activities1 and speak for the group to government officers and other outsiders.
Larger groupings have arisen as part of this program. Currently, there are eleven distributary-cnannel organizations con sisting of all of the farmer representatives from a single dis tributary channel plus the Irrigation Department technical assistant or work supervisor from the area. Each distributary-channel organiza tion elects a chairman from among the farmer representatives. Distributary-channel organizations help solve water distribution problems in individual field channels and are responsible for main taining the distributary channel. The Gal Oya farmers have also created area councils in three areas. Each area council consists of all the farmer representatives from about 4,000 acres. The area councils meet monthly arnd are chaired by farmcr representatives. Irrigation Department and other department officers are invited to the meetings. The meetings provide a regular opportunity for discussing problems faced by farmers and officers. Farmers and Irrigation Department officers credit these me6tlings with greatly improving relations between the two groups.
To organize farmers, ARTI has worked through catalyst agents called institutional organizers. IOs are university graduates given six weeks training and placed in the field to live and work with farmers. The IOs talk with individual farmers to determine what the local problems are, and then get the farmers to talk among themselves
74 to find joint solutions. The TOs also organize group activities to demonstrate the effectiveness of working together. After a time they attempt to persuade the farmers on a field channel to form a group and select a farmer representative.
This is a learning process. lOs do not receive detailed Instructions. Instead, they try different techniques and meet with other lOs frequently to discuss their problems and their successes. 1Os are fielded in groups of 3-6 an, the work is intense and difficult. Each group provides important intellectual, pr&ctical, and emotional support to its members. For a detailed discussion of how IOs have successfully promoted farmer organizations, see Am'ex B.
ARTI now divides organization into three steps. During Stage 1, IOs are fielded in an area and expected to induce farmers to create field-channel groups, each with a farmer representative. ARTI estimates that a single 10 can work with the farmers in a 300-acre area -- usually about 100 farmers. Stage 1 is the most intensive and takes about a year.
In Stage 2, the IOs strengthen the existing field-channel groups and help farmers create higher-level organizations. The experience in Gal Oya Left Bank system indicates that a!str.butary channel organizations may not be as useful as the broader area councils. Therefore, it is better to work with farmers and officers to determine what is appropriate rather than prescribe the same inter mediate organizations for all systems. Stage 2 uses fewer IOs because they mostly work with farmer representatives. It is reasonable to field one 10 per 600 acres and allow two years to complete stage 2.
In Stage 3, the 10 functions as ombudsman and advisor to farmer representatives and officers. in this stage, even fewer IOs are needed. One 10 to 2,000 acres is reasonable. ARTI has not yet .had enough experience to specify the time that the IOs are needed for Stage 3.
The INMAS program envisions the creation of a project committee, chaired by an appointed project manager, which will make the basic operation and maintenance decisions. Farmer representatives must be selected to sit on each project committee. In addition, the INMAS program prescribes forming field-channel groups like those found In Gal Oya. Clearly, except in very small schemes, a linking organization like the area council is needed to redu " - the number of farmer representatives that sit on a project committee. The precise form for such organizations is best left to the project manager and farmer representatives. Given the chancep farmers can and will develop appropriate, higher-level groups.
75 The ISM Project will support the INMAS program's attempt to create effective farmer participation by funding a farmer organization program modeled on the ARTI program. As part of the INMAS program, the Irrigation Management Division plans to offer career positions to a few lOs with experience In Gal Oya. The ISM Project will also provide funds to hire and train IOs to serve one or more years on contract. The contracted IOs will organize the six schemes in the ISM Project. In addition, the ISM Project will continue to support the farmer organization program in the Gal Oya Left Bank system.
To manage this effort, IMD will appoint a Deputy Director (Institutional Development) to serve as the ISM Project Deputy Director for the farmer organization program. The ISM Project will provide the Deputy Director with two assistants - one to recruit and train and one to monitor 10 performance. The Project will provide these officers with office equipment and a jeep.
Nine experienced IOs will be appointed as assistant project managers; one for each scheme except Gal Oya Left Bank, which will have three. The assistant project managers will report to their respective project managers and will supervise the farmer organization. Each will have a motorcycle and stationery supplies. ARTI will teach supervisory skills to the assistant project managers.
ARTI will train IOs initially and in-service. Not only has ARTI trained five groups of IOs, but it has also prepared extensive training materials. One ARTI research and training officer will have received graduate training in education at the University of Minnesota under the Water Management Project, so he will be able to oversee 10 training. Also, ARTI is creating a Training Division to manage the large amount of training needed for this Project. To help, the ISM Project will provide a jeep and some training equipment to ARTI, as well as covering the training costs.
Most of the Gal Oya Left Bank system will be in Stages 2 and 3. The alfort the ISM Project must make here depends upon how far the Water Management Project progresses. ISM Project assumes that it will need 40 IOs during all five years of the ISM Project at Gal Oya Left Bank. Forty lOs is slightly above the number required for Stage 3 work on the whole Left Bank Canal system.
The farmer organization program must begin with Stage 1 in all remaining systems. These systems total 92,750 acres excluding the 10,000 acres of sugar land in Gal Oya Right Bank. ARTI cannot train the 300 IOs it would need to field enough lOs to cover the entire area in the first year. If 105 IOs are trained (3 batches of 35 each) in each of the first two years, and some quit or were dropped, fielding would pr'oceed as shown in Table 18. The lOs at Gal Oya Left Bank have beAn excludcw from the table because most will continue from the Water
76 Management Project. In the third and succeeding years ARTI will need to train replacements for IOs finishing their c-ntracts. Funding will be provided for this training. As Table 18 shows, the number of IOs rises then falls over time; hence, most of their salaries are not permanent costs to the government. Those needed fnr Stage 3 work after the end of the Project will have to be reta ned. ARTI will provide in-service training as needed.
Table 18. Suggested Fiflding Schedule for IOs (Excluding Gal Oya Left Bank)*
Area % Area No. of Total Year Stage Covered Covered lOs Man-yaars
1 1 27,000 29 90 90
2 1 34,000 37 115 2 27,000 29 45 160 3 1 31,250 34 105 2 6J ,500 66 103 208
4 2 65,750 71 110 3 27,000 29 14 124
5 2 31,250 34 53 3 61,500 66 31 84
6 3 92,750 ICO 47 47
Total man-years (5 years) 666 Total man-years for Gal Oya Left Bank 200 *Year 6 is beyond the projected Project life.
To evaluate the program, the Deputy Director (Institutional Development) will submit quarterly reports to the Project Director describing the number of IOs trained and fielded, the areas covered, and farmer organizations formed. In addition, in the third and fifth years of the Project, ARTI will report on the effectiveness of field channel groups in managing field channels, the effectiveness of farmer representation on project committees, and other functions taken on by the farmoer organizations.
Finally, ARTI will study unresolved questions about farmer organization. Relevant subjects are the fielding densities of lOs, the strategies used by lOs, and consideration of alternatives to IOs.
77 C. Operations and Maintenance
Within operations and maintenance the ISM Project emphasizes: maintenance rather than rehabilitation; using existing flow control structures for water measurement rather than constructing new structures, unless absolutely necessary; developing substantially more Knowledge about happenings within the irrigation scheme; more planning and documentation; and gaining sensitivity to meet farmers' needs.
Through learning and adaptation, management will be able to improve financial management and accountability, equitably distribute available water, communicate better with farmer representatives, monitor water and land use, and document improvements for fjture irrigation schemes (Figure 12).
1. Maintenance
The first step in maintenance is to make a detailed list of all maintenance needs along each main canal, branch canal, and dis tributaries including field-channel inlel structures. Such a survey requires 2-3 individuals (irrigation engineer and technical assistant as a minimum) walking along all irrigation channels, taking notes on each maintenance need (e.g., sediment removal, repair of canal bank or damaged structure, etc.). The notes must provide sufficient detail to prepare a cost estimate for correcting each need.
A maintenance plan should be prepared for each tank irrigation scheme fcr the life of the ISM Project and should include;
*essential structural improvements and costs
Sinventor't of required maintenance and costs
epriority maintenance needs and costs
*maintenance equipment requirements
*maintenance manpower requirements
*maintenance plan
- force account maintenance - private contractor maintenance - farmer organization contract maintenance - first-year priority maintenance workplan - proposed workplans for second, third and fourth years
78 Figqre 12. A Physical Process for Irrigation System O&M
Maintenance Survey Irrigaton [ Conduct Operations Surve Conduct Scheme Mappingev
[Plan for Flow Control and Watp' M-'osurement[ MaintenanePa
Develop Disclrge Ratings for Needs Work Plan
S Flow Control Structures Implement Priority MKaintenar.-
Collect Watnr Measurement and Naedc PYDl
SOr Channel Losses Data
U Develo 0 Submit Annual Priority M.uin.enance
Implement Improvements in Needs Completin Report 0- Mid-term EvaluationC[ Water Delivery Schedules Modal for a Develop Computer .Imlenentin erations Plan
Collect Water Measurement, ChannelReie _ Losses, and Irrigation Application Maintenance I Efficiency Data for Refining Computer Model Il
Implement Refind Complete Priority
Water 3elivery Schedulee Hainteance Needs
Develop Irrigation Scheme Develop Preventive Improvements Plan Maintenance Plan End-of-Project polonnaruwa acr ct en a and Gal Oya Right Bank Canal System Beginning-of-Project Gal + Left Bank Canal Systemn I Seek Supportoand] Continue Continue Funding for Ref zin Preventive Irrigation Scheme Water Maintenance Delivery -Pro~ram
Develop Daily Operations
" om Preventive Kait-ene•
Collect Field15 Data on Work Plan Hydraulic Transients go in Irriation Channelsi [Preventive Submit Hain--aocAnnual 4Calibrate3 Computer DailyMode Operations Comple ion Report] Coi utr Model
S Develop aily Operations Plan!
Implement Daily Real-T imen Field-Data-Based 0perations
Revise Daily Revise Irrigation Schme Revise Preveni Operations Plan Improvements Plan Maint ce Plan
79 Each calendar (fiscal) year# a priority maintenance workplan would be forwarded to appropriate authorities for approval and funding. At the end of each year, the irrigation engineer for the tank irrigation scheme would prepare a report that lists each maintenance need cor rected and it's actual cost. This procedure would continue through the life of the project.
The maintenance plan would be refined when operations have proceeded to the point where channel losses are measured and field evaluations of irrigation application efficiencies on cropped, bunded fields are made. The revised maintenance plan should include a sec tion on maintenance requirements for field channels undertaken by the farmers' organizations with technical assistance from Irrigation Department personnel. At minimum, the irrigation engineer, the farmer representative for the field-channel under inspection, and the techni cal assistant responsible for delivering water to the field-channel should walk the entire length of the field-channel network and collec tively preparo detailed notes on the maintenance needs. Revisions to the previous maintenance plan can be based on new information and the experience gained during implementation.
During the last year of the ISM project, a preventive main tenance plan should be prepared for continued maintenance after the Project ends. This plan should discuss: physical causes and extent of maintenance problems, maintenance equipment and manpower requirements, maintenance requirements for farmers' organizations, estimated annual maintenance costs, and the preventive maintenance plan. This document should be forwarded for appropriate review and approval.
2. Operations
The first step in operations is to survey essential structural improvements for flow control (e.g., gate replacement) and water measurement (e.g., repairing of damaged structure, installing new flow measuring devices, etc.). The operations survey can be done separately or simultaneously with the maintenance survey. In either case, the operations survey is incorporated into the maintenance survey in developing a maintenance plan.
After making the necessary structural improvements, management must develop discharge ratings for all of the flow control structures. A current meter can be used to calibrate each structure on large main canals and branch canals, whereas portable flow-measuring flumes can probably be used to calibrate field-channel inlet structures and distributary-channel structures whenever feasible (otherwise, a cur rent meter would be used). Throughout the Project, routine checks should be made periodically and discharge ratings adjusted if necessary.
80 Each tank irrigation scheme needs detailed maps showing Pl irrigation and drainage channels, and the cropped jnds served by these channels. Maps and adequate flow-control structures ratc;. fur discharge measurement provide the tools for developing an operations plan. Presently, water delivery schedules are calculated, but the lack of flow control and water measurement structures precludes measuring distributary-channel and field-channel water deliveries. Implementing an operations plan will provide more equitable water distribution throughout the irrigation system.
To deliver equitable water supplies to field-channels, managers need information to determine water losses and calculate water budgets. As a part of the Water Management Project in Sri Lanka, a weekly, operations computer program has been developed for the Gal Oya Left Bank Canal systen consisting of three models for weekly irrigation requirements, water delivery schedules, and records and seasonal analysis. The model can be modified to suit the specific nature of each tank irrigation system in the Polonnaruwa District, as well as the Gal Oya Right Bank Canal system. Then, the users can calibrate the computer model for each system by collecting field data on channel losses and irrigation application efficiencies. Most chainnel losses can be determined for many reaches by using the dis charge ratings fran flow control structures. In other caes, ponding tests nvst be conducted prior to or after the irrigation season, or perhaps before and after a scheduled rotation. Field-channel losses can be determined using the rated field-channel inlet structures and portable flow measuring devices. Irrigatior. application efficiencies would be measured on a small sample of bunded cropland areas, account ing for the various soil types. If sufficient field data is collected, then the computer model will adequately simulate the real irrigated system.
The computer model can be used to simulate the impact of potential improvements to meet crop water requirements anywhere in the irrigation system and to pre-are a cost estimate for each potential improvement. The two data sets can be ccrbined to formulate options for improving the irrigation scheme that would achieve better water use. The options can be ranked and presented in an irrigationi scheme improvements plan. This document could then be used to seek support and obtain funding for making some of the recommended improvements.
The operations described above should be completed at the Gal Oya Left Bank Canal system by the start of the ISM Project, except, perhaps, the documentation for an irrigation scheme improvements plan. If channel losses and irrigation application efficiencies have not been measured prior to the ISM Project, then this work should be completed as soon as possible under the ISM Project. To further improve water deliveries, a daily operations computer model and a
81 radio communications network will provide rapid response to changing water demands anywhere in the system.
Gal Oya's weekly computer model delivery schedules will bo quite useful (after it has been calibrated to account for water losses throughout the system) in developing the daily operations model. Considerable field data must be collected to describe the hydraLlic transients that occur in the channels. For example, the rate of water advance and channel filling must be measured, as well as the rate of change in water surface elevations when control gates are adjusted upwards or downwards. Technical assistants, gate tenders, work supervisors, and others can assist with the relatively simpler periodic, field measurements.
The data on hydraulic transients will be used to calibrate the daily operations computer model on a large main-frame computer. After calibration, the model can be used in a desktop micro-computer at the operations center in the Gal Oya Irrigation Project. During daily operations, rapid communication is important. Besides having a radio base at the Gal Oya Operations Center, eight additional radio stations would be located within the distribution network. O&M personnel will have radios in their vehicles, but most of them will use walkie-talkies to communicate with the radio station in their area regarding opening and closing gates or adjusting gate settings. Daily adjustments should be based on observations of water needs below field-channel inlets and discussions with the approprizte farmer representative. This will allow the water delivery network to respond much better to crop water demands with a net result of increased crop yields and more effective water use. 3. Project O&M Activities
The ISM Project will support implementing Gal Oya Left Bank's preventive maintenance plan. ISM funding will include Rs. 6,000,000 ($240,000) each year to increase O&M staff and Rs. 50 per acre (or Rs. 3,250,000 for 65,000 acres) each year to maintain the main and branch canals. An annual preventive maintenance workplan will document the need for maintenance, costs, and proposed allocations to priority maintenance needs. After each year, an annual preventive maintenance completion report should document the use of O&M fees and farmers' labor to maintain distributary and field channels. The ISM Project will purchase radio and transportation equipment to support operations and will build an air-conditioned operations center to house the micro-computer Lnd radio station.
In the Gal Oya Right Bank Canal system rehabilitation on the main and branch channels will absorb most of the construction costs. ISM funds would not be used for irrigation channels that supply water
82 only to Sri Lanka Sugar Corporation lands. Gal Oya Right Bank Canal system will use the same O&M procedures described for the Polonnaruwa District tanks including developing a computer model for weekly water delivery and purchasing ralio and transportation equipment.
At the four tank irrigation schemes in Polonnaruwa District, small construction equipment will be purchased with ISM Project funds and the O&M learning process will be used. Each irrigation scheme will have a computer model for weekly water delivery; an operations center; and a micro-computer and radio, engineering, office, and transportation equipment.
The Ridi Bendi Ela/Magalla Wewa Irrigation Scheme will not receive ISM Project funds for maintenance. However# Irrigation Department O&M personnel will receive O&M training. These people can conduct operations and maintenance surveys and prepare a maintenance plan. They can rate existing flow control structures for flow measurement wherever possible and prepare an operations plan. The amount of O&M work completed will depend on the aggressiveness of the O&M personnel.
D. Financial Management
Irrigation schemes in Sri Lan!a ara subsidized by the Government. Construction of capital improvements as well as operation and maintenance receive allocations from the national budget. The Irrigation Department administers the budget for irrigation and directs construction, operation and maintenance in the various schemes under its control.
Irrigation improvements or scheme rehabilitation are managed case by case where funding is provided through a combination of GSL and outside donor and/or lending institutions. Operation and main tenance have been funded annually with recent allocations averaging Rs. 90 per acre per year, which often has been insufficient. Insufficient funds have greatly contributed to inadequate operation while accelerating the need for major rehabilitation.
In 1984, policy legislation set water charges at Rs. 100 per acre per year with provisions to increase the fee by equal increments to Rs. 200 per acre ovar five years. In the first year, the GSL will match the Rs. 100 per acre per year, which comes to a total of Rs. 200 per acre per year for maintenance. In subsequent years, the GSL will complement the farmer's payment to keep the total at Rs. 200 per acre. As user fees increase, GSL contributions decrease. Eventually the water users will fund all maintenance costs. All fees will go into a separate fund exclusively for O&M administered by the Irrigation Management Division. This fund, if administered well, can sustain appropriate funding to cover annual O&M expenses.
83 No decision has been made whether collected O&M fees will remain within the district or will be sent to Colombo and redistributed according to a prescribed formula. This decision will probably have been made before the ISM Project starts. Nevertheless, the team emphasizes that farmers closely monitor and compare fee payments to the cost of repairs and maintenance performed within their scheme, even to the extent that improvements are done on distributary and field channels where they farm. If the GSL expects farmer organizations to eventually take over certain maintenance func:tions, then farmers must also participate in managing the maintenance fund. Therefore, maintenance funds should stay in the district. Otherwise, farmers will have little incentive to pay fees that go to Colombo and lose their connections with specific schemes. Establishing a good financial management system is necessary to make funds available at the proper time in appropriate amounts to operate and maintain the system in good working order and to create incentives to pay O&M fees. The ISM Project will strengthen financial management proce durally and analytically by supplying micro-computers and technical assistance. This new system will enhance credibility among users, managers of irrigation schemes, and central government officials by increasing accountability. In addition, training and technical assis tance will help develop analytical techniques that can address policy questions such as the appropriate level of funding for each scheme, the best way to create incentives for farmers to pay O&M fees, and the level of funding needed for rehabilitation or structural improvements.
A computerized system is needed because of the magnitude of the financial management task facing the MiLD. O&M funds for major irrigation schemes alone should amount to more than Rs. 130,000,000 to be distributed to about 180 schemes. The IMD must account for these funds and the Irrigation Department will spend them. Schemes need to be able to account for O&M collections and expenditures on individual channels to provide accountability to farmers. Therefore, each irrigation scheme (except Hakwatuna Oya) will receive a computer, as will the three range Deputy Directors' of Irrigation and the IMD in Colombo. The Irrigation Department in Colombo already has adequate computer facilities.
The Sri Lanka Institute of Development Administration will develop the computerized accounting and reporting system. For compatibility, SLIDA will also receive a computer. A long-term specialist in irrigation financial management will give technical assistance to the Deputy Director (Finance) of the IMD, to SLIDA, and to Irrigation Department accountants.
84 The financial management program will aim at different levels of financial responsibility. Nationally, the IMD in Colombo will need to create an appropriate accounting and reporting system for O&M funds as it will most directly determine policy on the collection and use of O&M fees.
The Project Deputy Director for Financial Managament will oversee this aspect of the Project. IMD will recruit nine financial offizers to handle the accounts and analyses. If O&M funds are routed to individual schemes through the Irrigation Department in Colombo, the Irrigation Department will need to integrate their accounting and reporting procedures into IMD's larger system. Therefore, the finan cial management program will help the Irrigation Department to develop their system and will train Irrigation Department accountants and managers.
Whether O&M funds are routed to Colomtu or kept in the districts, district officers, particularly the range Deputy Director of Irrigation, will need to account for O&M fee collection and use. Therefore, the ISM Project will develop district accounting and report procedures to produce data directly useable in the national system. A district financial officer within IMD will be appointed in each dis trict to ovarsee financial management. The district economic consult ant will assist him part-time.
Project managers and irrigation engineers need to be able to account for the collection and expenditure of O&M funds on individual channels to satisfy farmers. Therenfore, the financial management program will supply the computer p;ogram(s) to make such accounting possible. The system will also produce reports to be directly integrated into district and national systems. Each project manager will be assisted by a financial officer. In addition, the project managers, irrigation engineers, and accounting staff will be trained to use the system.
Specifically, the system's financial managers will determine O&M funding needs and priorities, develop and implement forecasts that incorporate the sources and uses of O&M funds, gather information on allottees for billing water users and recording payments, account for expenditure of O&M funds, coordinate fee collection and management, and review and revise maintenance contracts to encourage farmer i nvol vement.
Also, SLIDA will develop simple bookkeeping procedures for farmer organizations so that the organizations can collect O&M fees and account for expenditures as contractors in maintenance work. In addition, SLIDA will develop training materials for teaching the system to farmers. The ISM Project will explore ways of training
85 farmers in the use of the system; either through IOs or some other manner.
Sound financial management at all levels will produce better accountability, distribute and use funds more efficiently, create incentives to increase O&M fee collections, improve the effectiveness of maintenance expenditures, and enhance the careers of financial managers in the Irrigation Departnent/IMD. Achieving these goals will contribute significantly to more efficient water us, and scheme operation. In addition, as O&M fee collection increases, the GSL's maintenance burden is reduced.
E. Monitoring, Evaluation and Feedback Capability Enhancement Monitoring, evaluation and feedback support project management through systematic data gathering, assessments and reports. A development and refinement cycle to guide the program is suggested below:
eDefine monitoring, evaluation and feedback (MEF) needs and objectives which are specific to the project and will change within the life of the project.
*Establish systems and procedures to meet the needs and objectives of the Project.
*Computerize systems and procedures for data processing and reporting on a micro-computer.
*Train personnel and implement monitoring, evaluation and feedback program. Field data collection personnel and information systems personnel must be carefully trained for the job.
*Establish monthly, mid-season, seasonal and annual reports. Regular reporting must be instituted at an early stage to be effective in project management.
*Evaluate performance. An annual assessment of MEF would allow the system to change as needed. After tho evaluation, the steps listed above would be repeated to refine the MEF system.
The technical component of the MEF program should initiate, sustain and institutionalize the capability to utilize the MEF program throughout the Ministry of Lands and Land Development. Monitoring, evaluation and feedback tools are useful in the Ministry, districts, projects, and irrigation schemes. In the Ministry, monitoring provides essential information to managers on the effectiveness of
86 broad programs. With information and analysis# managers can answer for their performance to central outhorities, and with appropriate feedback to the field, can make program adjustments to assure effec tive use of human and material resources. The Irrigation Systems Management Project will monitor and evaluate increases in food produc tion and rural employment income as performance indicators.
In the district, where the government departments work together to implement the program, managers and government agents need information to appropriately guide and implement the program. The information needed in the district would be established performance indicators that correspond to the role of the Ministry of Lands and Land Development departments and other entities functioning in the program.
Within a project, the information, analysis, and feedback required would be at levels appropriate for management by the project manager and the project committee.
In the irrigation schemes, monitoring, evaluation and feedback have absolutely essential roles in the basic management of the irriga tion scheme. The irrijation scheme -- as a complex combination of human, natural and purchased resources designed to produce crops, employ people and provide incomes -- requires careful management to assure the effective use of these resources to achieve the desired outputs. Successful management can be conceptualized as the integra tion of the six elements shown in the flow chart below which includes monitoring, evaluation and feedback with periodic communication, measurement and control.
Information dissemination means holding a seasonal cultivation meeting and developing and disseminating a seasonal, water-issue plan. It also involves spreading information on adjustments in water issues in response to crop growth stage, rainfall and/or water availability. Communication keeps all management levels working together, including farmer organizations and farmers as individual entrepreneurs.
Measuring supply and demand refers to the weekly delineation of crop and land water requirements, measuring rainfall, and noting ,he area under each crop, the crop growth stage and the soil type; all of which may require adjusting the water requirement.
Control of water delivery involves calculating the appropriate discharges at all bifurcation and off-take points throughout the scheme, instructing irrigation staff and farmer representatives on adjusting or setting gates to control water deliveries throughout the scheme. Control is usually adjusted weekly. In case of rainfall, control must be adjusted daily.
87 Figure 13. Irrigation Scheme Operational Management* Procedures Content
INFORMATION Targets/Plan Communicated DISSEMINATION ----- Participation Enhancement
MEASUREMENT Irrigation Demands SUPPLY & DEMAND ----- Rainfall Irrigation Supply
CONTROL OF Target Discharges WATER DELIVERY - Gates Set to Targets I Adjust Gates
MONITORING Target Achievement & PERFORMANCEHParticipation ..... Stress Occurrence Interference Behavior
EVALUATION Performance Analysis AND PLANNING ----- Workshop Review and Planning Consensus on Next Targets
*Successfully used in large-scale irrigation projects in the Philippines and Thailand.
Monitoring of performance involves observing and quantifying actual irrigation deliveries throughout the scheme, observing water application and crop water stress on sample farms, measuring drainage flows as waste or for reuse downstream. Monitoring also includes observing personnel performance, farmer organization performance, and farmer irrigation behavior and registering farmer complaints and inputs with decision makers.
Evaluation and planning includes assessing weekly how well the scheme operated relative to the weekly target discharges, the amount of crop water stress noted on the sample fields, and the number of complaints received from the users. Seasonal evaluation can take place in a workshop once simple operational analysis is completed.
88 The workshop attendants can r'sview the past season as well as plan for the next. Evaluation criteria, each with a varying time of comparison, include issues of equity, prodLction, efficiency* environ mental stability, personnel performance, and structural performance (Table 19).
Fedbak can be done weekly as well as seasonally. Feedback brings information back to the manager, which may lead to dissemina tion of a new plan or implementing the next cycle.
Table 19. Irrigation Scheme and Program PerformancA Indicators
Weekly by the Irrigation Seasonally by the Project Manager's Scheme Staff Technical Staff
EqitJ.y: access to water throughout access to credit and other inputs the scheme and during the length of crop season
Production: accumulation of stress area cropped, cropping intensity, days at selected points in the yield scheme and area cropped
UfifciJ.euy.: water distribution in use of water and other inputs time and space as ratio of water demands to water supply
Stabilit: floods, typhoon watertable, waterlogging, erosion Human Involvement: interference farmer organization management, behavior, positive behavior scheme, and personnel performance Structural/Control,: convenience, structural failure, unravelling effectiveness and responsiveness
The irrigation engineer and his staff of technical assistants, work supervisors and irrigators should monitor weekly all factors that directly influence the scheme operations and require a weekly report. Items monitored over a longer time, such as seasonal observation, should be supervised by a special staff attached to the Deputy Director of Irrigation. The staff would be composed of, at least, an agricultural economist, an agronomist, and a rural sociologist who would produce a seasonal report on the performance of the irrigation
89 scheme. Technical assistants trained by the Water Management Cell and attached to the project manager would actually gather data. For monitoring, evaluation and feedback to be appropriate and effectively established in the Ministry, districts, projects, and schemes, several quality factors must be strictly adhered to:
ework must be defined carefully, have procedures elaborated, and be scheduled regularly;
ejob assignments and information channels must be clear and wel 1-defined;
etraining must be tied directly to the job description;
* performance evaluation must be based on well-defined and well understood performance indicators; and
o must emphasize a regular reporting schedule.
A monitoring, evaluation and feedback system is logically organized, established and Implemented from the bottom (Figure 14).
An excellent opportunity for establishing an effective monitoring, evaluation and feedback program in the irrigation systems exists with the diagnostic analysis efforts of Colorado State University under the Water Management Synthesis Project. The diagnos tic analysis workshop has trained Sri Lankan nationals from a variety of disciplines and parent organizations to identify problems in the field, quantify data, and write reports. These skills would be very useful to the monitoring, evaluation and feedback cadre envisaged under the Irrigation Systems Management Project and to those who are currently being trained by the Water Management Cell of the IMD.
F. Training Enhancement
The training capability needed to support the Project requires enhancing the existing Sri Lanka training institutes and programs and carefully selecting overseas training programs to meet specific needs. The training development cycle elaborated in Annex E, is in use in several Asian irrigation training programs.
The design team has identified seven in-country training programs for the ISM Project: Galgamuwa Irrigation Training Institute, Project for Accelerating Settlement Expertise, Sri Lanka Institute of Development Administration, Agrarian Research and Training Institute, the Water Management Cell of the IMD, the University of Moratuwa, and the University of Peradeniya.
gO Figure 14. Data Collection and Analysis Summary and Aggregation
Summary and Aggregation
c, -O Irrigation Scheme 0
Summary and Aggregation
U Project Area
Summary and Aggregation I -o
Summary and Aggregation
1.Te lgamrria nt/Mi nistry
The1. GalgamuwaThe GalgamuwaIrrigation Irrigation Training Institute (GITI) Training Institutes which operates under the Irrigation Department, will be strengthened to provide basic operations and maintenance training to Irrigation Department employees, especially the irrigation engineers, technical assistants, and work supervisors. The training must emFasize proven, modern management concepts used in irrigation systems as re~ated to employees' jobs including information dissemination, measurement, control, monitoring, evaluation, and feedback.
Modern maintenance concepts and the basics for observing irrigation systems, ranking problem importance, and implementing essential structural improvements are important elements of the curriculum. GITI will also include a unit on sensitivity to the institutional organizer program and to the important role that farmers' organizations will play in system management.
91 The Water Management Project brought GITI to an acceptable training capacity, but further enhancement is needed to replace rotat ing staff and to develop written training manuals for the ISM Project.
2. The Project for Accelerating Settlement Expertise (PASE)
PASE will annually train the project managers and assistant project managers under the INMAS program. The first phase of PASE concludes in March 1985. The second phase should further strengthen the training capability of PASE which may become a training institute in MLLD. Currently, PASE has no regular personnel, equipment or facilities of its own. This may change as the training needs within MLLD are specifically defined.
3. Sri Lanka Institute of Development Administration (SLIDA)
The financial managers who will administer Sri Lanka's finan cial management systems for irrigation improvement will require train ing on micro-computers at the Sri Lanka institute of Development Administration. The ISM Project will help SLIDA develop a curriculum and provide funds for faculty to visit similar programs in the Philippines at the Asian Institute of Management and the Salt River Project's Management Training Program in Arizona, USA.
SLIDA's Division of Financial Management can contractually provide micro-computer financial management training to Ministry officials, Irrigation Management Division and Irrigation Department personnel, district administrators and project managers. This train ing would be short (perhaps 2 to 3 weeks) and would emphasize practi cal implementation, except for the orientation sessions which would last only 1 or 2 days.
4. Agrarian Research and Training Institute (ARTI)
The Agrarian Research and Training Institute would train the institutional organizers and 10 supervisors. ARTI has succissfully trained institutional organizers through the Water Management Project. Institutional organizers will be valuable to the ISM Project also. 5. Water Management Cell
The Water Management Cell, created in the Irrigation Management Division, bridges the Water Management Project to the Irrigation Systems Management Project through training and developing a data base in project sites to allow rapid start-up of the ISM Project. The Water Management Cell was designed to take advantage of the diagnostic analysis workshops held in Sri Lanka from 1982 to 1984, where engineers, economists, agronomists, and sociologists were trained to identify, quantify, and document problems in irrigation
92 systems. The design team foresees that during the life of the ISM Project, the Water Management Cell may become the technical training organization for the Ministry of L.ands and Land Development, as well as assume responsibilities in the ISM Project's research and monitoring, evaluation and feedback programs.
6. Civil Engineering Department of the University of Moratuwa
The experienced faculty of the University of Moratuwa could be engaged to conduct short courses as the need arises in such topics as: " Micro-computer information management for monitoring, evaluation and feedback; and
" Some of the University of Moratuwa faculty have much needed experience in diagnostic analysis and could teach courses arising in this area. 7. Engineering Faculty of the University of Peradeniya
The University of Peradeniya, Faculty of Engineering would be contracted to provide these technical courses:
*Operational model development, refinement and implementa tion based on the computer model developed for the Gal Oya Left Bank Canal system under the Water Management Project; and
*Other topics as the need arises during the life of the project.
Some of the University of Peradeniya faculty have experience in hydraulics and micro-computer modeling.
8. Water Management Training Overseas
A number of training courses in other countries could benefit agency personnel, including training conducted at the National Irrigation Administration (NIA) in the Philippines, the University of the Philippines at Los Banos, and Colorado State University and Utah State University in the U.S.A. The National Irrigation Administration has conducted many in-service training programs for its community-organization personnel and technical staff to support NIA farmer participation and water management programs. The NIA has concentrated on pre-construction, construction, operation and maintenance, and irrigated crop production. The NIA has arranged additional training activities for
93 government delegations from Indonesia and Sri Lanka for many years to share the Philippinesv experiences in organization.
The University of the Philippines at Los Banos has a one-year masters' degree program and numerous short courses entitled "Manage ment of Rural Development" to which a selected few, prepared can didates might be sent. The Asian Institute of Management has a number of rural development management projects with the NIA that are worth visiting.
Colorado State University has a seven-wee, interdisc, plinary, summer shortcourse for senior officials called "Socio-Technical Aspects of Improved Irrigation Management" which is appropriate for project managers, government agents and other senior officials of the Irrigation Department and the Ministry of Lands and Land Development. Ten officials from Sri Lanka have attended thus far.
Utah State University has a series of technical shortcourses offered annually; some of which are particularly appropriate for ISM Project personnel, such as: "Irrigation Design, Evaluation and Scheduling," "On-Farm Water Management," and "Operation, Maintenance, and Management of Irrigation Districts."
The design team suggests that two faculty members from GITI and two members from PASE be sent each year for the life of the project for long-term training (12 months). Likewise, two faculty members from both SLIDA and ARTI should take a carefully designed study tour for two to four weeks to the University of the Philippines - Los Banos, NIA and the Asian Institute of Management in the Philippines each year for the first three years of the project.
G. Research
ISM Project research has two objectives: to increase Sri Lanka's institutional capacity to conduct research and to find causes and solutions to problems which must be solved if the ISM Project is to accomplish its objectives locally. Some research activities may simultaneously satisfy both objectives. For example, many sections of the main distribution canals have single banks. A relevant issue is to determine when to have single banks and when to have double banks. To decide, it will be necessary to estimate conveyance losses for both single and double bank canals. One research approach to this problem would be to conduct operational or ponding tests. ISM could provide technical assistance and contract with appropriate Sri Lankan univer sities to conduct the research with the provision that students study ing irrigation engineering help with the research.
The research may involve investigating more fundamental issues, but recognize that it is not likely that conclusive evidence
94 could be provided during the life of the ISM Project. In other situations, problems may be most productively addressed through a combination of administrative studies and research efforts. Some examples of appropriate research efforts follow.
The International Irrigation Management Institute, in coopera tion with other appropriate institutions, could research the impact of various incentives that could affect the farmers' payment of O&M fees and farmer participation in O&M activities.
Farmers, independent of the Irrigation Department, operate and maintain more tan 2 5,000 small tanks in Sri Lanka. Management sys tems developed by the farmers contain many useful lessons about effec tive farmer organizations. Universities or other research institutes could 'contractto continue systematic studies already begun on indigenous farmer management systems to identify principles and ideas applicable to INMAS farmer organizations.
During the latter stages of the ISM Project, a comparative study of alternative methods for improving major irrigation schemes should yield information and principles important for future policy decisions and irrigation improvement programs. The improvement programs used in the ISM Project should be the first priority for investigation. Other candidates for such a study would be programs assisted by donor agencies such as AID, the World Bank, the Japanese and Canadian governments, as well as the independent programs under taken by the GSL.
The research program cannot be detailed in advance if Its full potential is to be realized. Many of the problems will not be iden tified until the field survey work on the project sites is completed. Identifying appropriate research contracts with Sri Lankan institu tions will be subject to negotiations once the project has been implemented. Therefore, the research element of the ISM Project should be flexible, with the provision that all research efforts must contribute towards the ISM Project's rcsearch objectives. Project funds will be set aside for research contracts negotiated during the life of the project.
H. Equipment and Facilities
To provide essentital structural improvements and correct priority maintenance needs, three types of arrangements will be used: force account mainterance using Irrigation Department equipment and personnel, small contracts with private contractors, and farmer labor in conjunction with Irrigation Department equipment and operators. The ISM Project will need to purchase only a modest amount of equip ment at the four Polonnaruwa District tanks, such as front-end loaders, vibratory rollers for soil compaction, small backhoes, small
95 crawler tractors (120 hp), and farm tractor-trailers for hauling soil and construction materials. For pragmatic rehabilitation of the Gal Oya Right Bank Canal system, the construction equipment already pur chased under the Water Management Project will be used.
For the Gal Oya Irrigation Project and the four irrigation schemes in Polonnaruwa District, radio equipment and walkie-talkies would be purchased. Also, desktop micro-computers will be provided, and additional facilities will be built at the project sites to house the radio stations and the micro-computers.
Financial management staff and trainers at IMD headquarters, the Sri Lanka Institute of Development Administration, and the Deputy Director of Irrigation at Polonnaruwa, and the water systems opera tional analysis unit at the University of Peradeniya will also receive mi cro-computers.
Some jeeps, a number of motorcycles, and numerous bicycles (for 010s) will be provided with project funds. I. Technical Assistance
Technical assistance will provide critical support to the other project components, and the technical assistance team will provide a cohesiveness in project implementation.
The technical assistance team will consist of short and long term expatriates contracted from a U.S. universities and a recognized engineering consulting firm as follows in Table 20. 1. Financial Management
A long-term, expatriate financial management/project manage ment specialist will establish the appropriate financial management mechanisms at each of the three levels of government. He will also serve as the team leader. The two agricultural economists (Polon naruwa and Gal Oya) will help implement the financial management system for over 50% of the two years of their time. Short-term, expatriate assistance for financial management will be provided by agricultural economists with financial management experience.
2. Farmer Organizations
A long-term (two-year) expatriate sociologist or anthropologist acti;ig as the farmer organizational specialist will provide the institutional guidance for developing farmer organizations. He will be assisted by expatriate, short-term advisers in this discipline, subsequent to his 24-month assignment.
96 Table 20. Technical Assistance Team Members and Their Time Commitment.
Position Time Participation in ISM Project Long-Term Expatriates
Team leader & project/flinancial manager (HQ) 60 pm (1/2 FM & 1/2 MEF) Farmer organization specialist and sociologist (rotating) 24 pm (FO) Computer application specialist (Rotating among sites) 12 pm (1/3 FM, 1/3 MEF, 1/3 0&M) Agricultural engineer (Polonnaruwa) 60 pm (1/2 0&M, 1/2 MEF) Agricultural eccnomist (Polonnaruwa) 24 pm (1/2 MEF, 1/2 FM) Agronomist (Polonnaruwa) 18 pm (MEF) Agricultural engineer (Gal Oya) 60 pm (1/2 O&M, 1/2 MEF) Agricultural economist (Gal Oya) 24 pm (1/2 MEF, 1/2 FM) Agronomist (Gal Oyai 18 pm (MEF)
TOTAL 300 pm Short Term Expatriates
Farmer organization specialist 6 pm (ARTI & Field Sites) Agronomist 12 pm (V12 Polonnaruwa, 1/2 Gal Oya) Agricultural economist/ 12 pm (1/2 Polonnaruwa, financial management 1/2 Gal Oya) Water management design engineers 6 pm (Polonnaruwa) Agricultural systems engineer 10 pm (Polonnaruwa) Irrigation training specialist 15 pm (GITI) Management training specialist 15 pm (PASE)
TOTAL 7 6 pm
FM - Financial management FO - Farmer organization pm - person-month HQ - Headquarters
97 3. Operations, Maintenance and Essential Structural Improvements One expatriate agricultural engineer will be stationed at Polonnaruwa for five years and one at Gal Oya for five years. These advisors will work with the irrigation engineers and project managers to establish O&M procedures and priorities, as well as the essential structural improvement programs. O&M activities will account for 50% of the time of these two agricultural engineers. Agricultural systems operations specialists, water management design specialists, and a long-term micro-computer specialist will also assist part-time in other areas such as financial management to advise on record-keeping, billing and information system development. 4. Training
Expatriate training assistance will be provided part-time to ARTI by the farmer organizational specialist. Short-term training materials will be written by people during five TDY's. Nevertheless, the counterparts will receive considerable training from the expatriate team on the Job throughout the project. In some cases, the team will prepare special training exercises to demonstrate improved techniques of irrigation systems management. Other training will be arranged by contracts with ARTI, SLIDA, the University of Moratuwa and the University of Peradeniya over the life of the project.
5. Monitoring, Evaluation and Feedback (MEF) The expatriate agricultural engineers and agricultural economists (24 months in Polonnaruwa and 24 months in Gal Oya) will be responsible for establishing the monitoring, evaluation and feedback system using 50% of their time. The agrononist (18 months in Polonnaruwa and 18 months in Gal Oya) will work fulltime in MEF. They will work closely with the expatriate social scientists and project/computer specialists in establishing this system. Upon com pleting the long-term assignment, the economists and agronomists shall return periodically to ensure that the system is functioning as intended.
Long-term, local Irrigation Department and IMD staff will be responsible for the daily duties of the system. One person will be stationed at each scheme within the Project for five consecutive years.
98 6. Research
Research will only be undertaken contractually with existing research institutions and universities within Sri Lanka. The Water Managemant Synthesis Project will most likely be called on to under take research activities with tho Sri Lanka research institutes and universities.
99 VII. ECONOMIC ANALYSIS
A. Summary Conclusions
Feasibility studies of irrigation projects in Sri Lanka have consistently demonstrated that rehabilitating irrigation schemes is economically desirable. For example, the project papers for Walawe indicated an economic internal rate of return of 35%, while the project paper for Gal Oya Left Bank indicated an economic internal rati of return of 23%. A prelirinary staff appraisal report for the World Rank involving seven major tanks shows that the expected econcynic internal rates of return range from 14% to 34%, with an average of 20%. A project paper for the Mahaweli Ganga project indicated, when sunk costs are not considered, that the economic internal rate of return would be 21%. A preliminary draft report on System H of Mahaweli indicates that irrigation water has a value of Rs. 709/acre-foot of water.
Rehabilitating older irrigation schemes in Sri Lanka is also economically feasible. The estimated economic internal rate of return for the four proposed sites at Polonnaruwa is conservatively estimated at 20%.
All of these analyses make one crucial assumption--that the irrigation headworks and channels will be adequately maintained after rehabilitation, which historically has not been the case. What is different about the ISM Project and ;hat new information can be gained which is relevant to Sri Lanka's plans for economic development?
The ISM Project is designed to find more cost effective, less capital intensive methods of rehabilitating irrigation schemes by exploring different intensities of improvement. The ISM Project is designed to encourage institutional changes that will substitute a sustainable irrigation system for the construction-deterioration rehabilitation-deteroratln pattern that seems to drminate most irrigation systems in the world by emphasizing management rather than merely reconstructing schemes. The ISM Project is designed to create an environment that w'll promote continued inc!'eases in agricultural productivity by emphasizing not only physical reliability, but also farmer participation in operating and managing the scheme. Farmers need to see an environment that will encourage them to shift to more productive farm systems.
The economic analysis of the expected benefits and costs of the Irrigation Systems Management (ISM) Project is based on an analysis of paddy production, capital savings, opportunity cost of irrigation water, and the economic value of sustained quality of
101 V 704 ~q operation in irrigation systems. The principal economic analysis is of increased paddy production at four irrigation schemes in Polonnaruwa District, the Gal Oya Left Bank Canal system, and the Gal Oya Right Bank Canal system. The analyses of capital savings, oppor tunity cost of irrigation water, and economic value of sustained quality of operation of irrigation schemes will be followed by an analysis of the direct economic benefits and costs associated with the project sites.
In addition, the design team analyzed the potentially sig nificant net benefits that do not lend themselves to incorporation into standard benefit/cost analyses, and while added to the principal economic analysis presented here, they should not be regarded as unimportant. They may have significant implications for the present project and for future water resource use and development policies in Sri Lanka.
The economic analysis of increased crop production indicates that the ISM Project will generate enough net benefits to justify the project work done on each site. However# this is not considered the most important benefit derived. The ISM Project also is to develop more knowledge about the internal, physical irrigation system so that management can employ improved practices to equitably distribute water and increase total farm income and, more importantly, to provide equity in farm incomes. Another major benefit is establishing more cost-effective and affordable methods of irrigation scheme improvement. The combination of lower capital expenditures and improved management will cost much less than periodic rehabilitation and deterioration. Also the irrigation facilities are much more likely to be maintained.
B. Economic Analysis of Increased Productivity on Project Sites
The ISM Project wants to improve the equity of water deliveries throughout an entire scheme. Characteristic of most schemes in Sri Lanka, some fields receive less than a full water supply because of limitations in the system. The economic analysis assumes that improved water distribution wi1l increase crop production in the scheme. This implies that fields n-, 'eceiving a full water supply will, with the implementation of the ':,A Project, receive full water supplies and will increase in productiity to a level comparable to fields presently receiving full irrigation.
Under present conditions during Maha, irrigation supplements rainfall and plant moisture requirements are generally better satis fled than during Yala. Except in abnormally wet years during YalA, Maha yields are typically higher. For the economic analysis, it has been assumed that present Maha yields represent the production that could be achieved during Yala under the ISM Project.
102 Another important benefit of the ISM Project is that improved water management will reduce excessive field applications, resulting in less water use per acre. Better water allocation will give the system the ability to serve more area, especially during Yale. More area served means an increase in the overall cropping intensity of the scheme.
Therefore, it is assumed that under the ISM Project, produc tion will increase as the lower-yielding fields produce crops more similar to the higher-yielding fields because of equitable water distribution, and overall cropping intensity will increase as water is more efficiently applied. These two assumptions are based on the premise that significant differences in productivity are evident between the head and tail units and fields because of differences in water availability. ARTI has observed in recent and on-going field investigations that no significant variation between head and tail units exists in agricultural input use. A large variation does exist in the availability of water and the level of water use, which appears to have significant impact on productivity.
Empirical data are limited, so as more information is collected, the role of water availability and its impact on produc tivity will become better defined. Nevertheless, the data analysis of the Gal Oya Left Bank system indicates the differences between head and tail productivity.
The magnitude of disparity can be seen in the June 1982 report, "Initial Analysis of Pre-Rehabilitation Situation in Left Bank Gal Oya," by ARTI. During MAbA 1979/80 and 1980/81, and YAlA 1980 and 1981, yields were collected on four subsystems and classified accord ing to field location in terms of head and tail: (1) "...there was no significant correlation between yield and location of farms along the field channel, i.o., whether they were at the head, middle or tail of the channel;" (2) "...location of field channels along a distributary also did not appear to influence the level of yields...whether they were head, middle or tail...;" and (3) "...variation of yield among units was seen to be significant." Thus, data do not support dif ferences in head-tail yields on field and distributary channels. However, significant support for differences in yield is found among units--the farther the units are located from the head of the main canal, generally the lower the observed yields are. The economic analysis of the ISM Project focuses on this difference.
Yield data were collected from over 500 farmers in the Gal Oya Left Bank Canal system during Maha seasons 1979/80 and 1980/81. The same sample farms were used for Ya1e 1980 and 1981, where 235 farmers reported yield information for 1980 and 191 farmers for 1981. The mean difference in yields between head and tail farmers for these four seasons is 50%: farmers at the head of the irrigation scheme achieved 50% higher yields than farmers at the tail of the scheme. Not
103 included in the analysis are the number of fields not in production during JAJA due to insufficient water; using the number of farmers reporting as a gauge, well over 50% of the sample had fields lying fallow. Thus, if production of the entire sample area were consider6d, average yields for tail farms would be even lower.
In the following quantitive analysis of the Polonnaruwa District Tanks and the Gal Oya Right Bank Canal system, an effort was made to use conservative estimates since many of the parameters involved have limited empirical data for support. Nevertheless, the available data indicate that values are at least those used in the following analysis and probably higher.
1. Polonnaruwa District Tanks
The acreage for the major tank schemes at Polonnaruwa are presented in Table 21. The added acreage (largely due to encroachment) is 26% of the specified area and 20% of the area irrigated by the major schemes. The number of "added acres" is an estimate, and one of the objectives of the ISM Project is to obtain an accurate inventory of present irrigated acreage and potentially irrigable acreage for each scheme by preparing 1:5000 maps.
Using the acreage from Table 21 for the Maha season, the estimate of Yala acreage and total acreage are presented in Table 22. Acreage varies from year to year depending on, among other things, water availability. Some people familiar with the area feel that the official estimates of yields may be too highy but these yields are used in the following analysis.
Table 21. Base Acreage for Four Schemes at Polonnaruwa*
Parakrama Samudra Minneriya Giritale Kaudulla Total
Specified 19,000 16,750 6,200 10,400 52,350
Added 5,000 5,300 1,300 1,600 14,200
Total 24,000 22,050 7,500 12,000 65,550
* Conflicting information exists on the irrigated acreage. Table 21 contains acreages provided by the Deputy Director of Polonnaruwa Range in October 1984. The Polonnaruwa District Handbook-1982, reports acreage averages for all major schemes in Polonnaruwa for MabA during 1980/81 through 1983/84 as 68,447 acres and the average for YaJa 1980 through 1983 as 50,942 acres.
104 Table 22. Acreage, Yield and Production of Paddy for Parakrama Samudra, Minneriya, Giritale and Kaudulla for the Base Project
Cropping Maha Yala Total Intensity
Acreage 65,550 48,507* 114,057 1.74
Yield** 90 bu/acre 64 bu/acre 78.94 bu/acre*** NA
Production 5,899,500 3,104,448 9,003,948 NA
Based on PDH - 82 for major schemes in Polonnaruwa, MAha acreage averaged 68,447 for 1980/81 through 1983/84 while YalJA acreage averaged 74% of MAhA acreage, or 50,942 acres, for 1980 through 1983. ' The yiolds for the same period used above are 87.4 bushels of paddy per acre for Maha and 67.23 bushels of paddy per acre for YaJa. The same yields for 1980/81-82/83 for MAhA are 90.5 bushels per acre and 64.45 bushels per acre for .aJ during 1980-82. ?Ai yields in 1983/84 were depressed by heavy rains, while 1983 YAna yields were unusually high. Yields used for the base analysis will be 90 bushels per acre for Maha and 64 bushels per acre for Yla,. *~* Total production divided by total acreage.
Table 23 presents the expected production on these schemes xi.t±hou the ISM Project based on GSL reports. Without the ISM Project, the following would occur. Jp yields would increase 1% per year due to technology (based on historical trend) up to 100 bu/acre, at which level an inadequate Irrigation system would make it impos sible to respond to unfavore'le weather conditions. Because of the risk, farmers would limit their attempts to increase yields. Jala yields would increase at 1% per year. Cropping intensity would remain at 1.74 due to the limitations of the irrigation system. Total production would increase 14% during the 20 years prosentid.
Table 24 presents expected production on theie schemes ywjth the ISM Project. Mfa yields would increase 1% due to technological advances. Yla yields will be slightly over 70% of Maha yields at the beginring of the ISM Project. It is assumed that Xala yields will equal Maha yields by the 10th year. Improved yields wi',l be due to more reliable and adequate water delivery during Yalaa. If YAla irrigation is adequate, Y yields should eventually exceed aha yields. Cropping intensity is estimated to start at 1.74 and increase to 1.95 by year 10 under the ISM Project. After the 10th year, yields will continue to increase 1% per year. Therefore, production with the
105 Table 23. Paddy Production in Polonnaruwa without ISM Project
Maha Yala Total Year Acreage Yield Production Acreage Yield Production Acreage Yield Production bu/Ac (1,000 bu) bu/Ac (1,000 bu) bu/Ac (1,000 bu) 1 65,550 90 5,900 48,507 64 3,104 114,057 79.0 9,004 2 65,550 90.9 5,958 48,507 64.6 3,134 114,057 79.7 9,092 3 65,550 91.8 6,017 48,507 65.3 3,168 114,057 80.5 9,185 4 65,550 92.9 6,090 48,507 65.9 3,197 114,057 81.4 9,286 5 65,550 93.7 6,142 48,507 66.6 3,231 114,057 82.2 9,373 6 65,550 94.6 6,201 48,507 67.3 3,265 114,057 83.0 9,466 7 65,550 95.5 6,260 48,507 67.9 3,294 114,057 83.8 9,554 8 65,550 96.5 6,326 48,507 68.6 3,328 114,057 84.6 9,653 9 65,550 97.5 6,391 48,507 69.3 3,362 114,057 85.5 9,753 10 65,550 98.4 6,450 48,507 70.0 3,395 114,057 86.3 9,845
11 65,550 99.4 6,516 48,507 70.7 3,429 114,057 87.2 9,945 12 65,550 100 6,555 48,507 71.4 3,463 114,057 87.8 10,018 13 65,550 100 6,555 48,507 72.1 3,497 114,057 88.1 10,052 14 65,550 100 6,555 48,507 72.8 3,531 114,057 88.4 10,086 15 65,550 100 6,555 48,507 73.6 3,570 114,057 88.7 10,125 16 65,550 100 6,555 48,507 74.3 3,604 114,057 89.1 10,159 17 65,550 100 6,555 48,507 75.1 3,643 114,057 89.4 10,198 18 65,550 100 6,555 48,507 75.8 3,677 114,057 89.7 10,232 19 65,550 100 6,555 48,507 76.6 3,716 114,057 90.1 10,271 20 65,550 100 6,555 48,507 77.3 3,750 114,057 98.4 10,305 Table 24. Paddy Production in Polonnaruwa with ISM Project
Maha Yala Total Year Acreage Yield Production Acreage Yield Production Acreage Yield Production (1,000 bu) (1,000 bu) (1,000 bu) 1 65,550 90.0 5,900 48,507 64.0 3,104 114,057 79 9,004 2 65,550 90.0 5,958 50,037 67.8 3,393 115,587 81 9,351 3 65,550 91.8 6,017 51,567 71.6 3,692 117,117 83 9,709 4 65,550 92.7 6,076 53,097 75.5 4,009 118,647 85 10,085 5 65,550 93.7 6,142 54,627 79.3 4,332 120,177 87 10,474
6 65,550 94.6 6,201 56,157 83.1 4,666 121,707 89 10,868 7 65,550 95.5 6,260 57,687 86.9 5,013 123,237 91 11,273 8 65,550 96.5 6,326 59,217 90.8 5,377 124,767 94 11,702 9 65,550 97.5 6,391 60,747 94.6 5,747 126,297 96 12,138 C 10 65,550 98.4 6,450 623,277 98.4 6,128 127,827 98.4 12,578
11 65,550 99.4 6,516 62,277 99.4 6,190 127,827 99.4 12,706 12 65,550 100.4 6,581 62,277 100.4 6,253 127,827 100.4 12,834 13 65,550 101.4 6,647 62,277 101.4 6,315 127,827 101.4 12,962 14 65,550 102.4 6,712 62,277 102.4 6,377 127,827 102.4 13,089 15 65,550 103.5 6,784 62,277 103.5 6,446 127,827 103.5 13,230 16 65,550 104.5 6,850 62,277 104.5 6,508 127,827 104.5 13,358 17 65,550 105.5 6,916 62,277 105.5 6,570 127,827 105.5 13,486 18 65,550 106.6 6,988 62,277 106.6 6,639 127,827 106.6 13,627 19 65,550 107.7 7,060 62,277 107.7 6,707 127,827 107.7 13,767 20 65,550 108.7 7,125 62,277 108.7 6,770 127,827 108.7 13,895 ISM Project is expected to increase 83% in 20 years, largely because of the expected increase in Ya-a acreage to 95% of MahA acreage. It is assumed that Bata acreage would not increase as a result of the ISM Project. However, it may be reasonable to expect a slight increase in MahA acreage as the result of the ISM Project.
Table 25 presents the gross benefits from increased production to be expected with the ISM Project. The estimated price of rice used in Table 25 is lower than the real price of rice which existed from 1960-70.
Table 26 represents the preliminary estimate of ISM Project costs and their distribution during the life of the project for Polonnaruwa. Non-capital costs of Rs. 2,940 per acre are 163% of the capital costs which are Rs. 1,800 per acre. At the proposed World Bank Major Irrigation Rehabilitation Project, non-capital costs are only 37% of capital costs. This comparison rGpresents the emphasis that the ISM Project places on institutional development rather than the construction of physical works.
Little empirical information exists on the probable impact of the ISM Project on O&M costs. Gal Oya experience indicates that pragmatic rehabilitation will actually decrease maintenance costs. Operating costs, particularly with greater emphasis on management, could be expected to increase. However, the Irrigation Department has continually stressed their ability to handle more intensive management once the systems are improved. The ISM Project has allocated approximately Rs. 100 per acre to cover additional 0&M costs. Since Polonnaruwa will be improved to the approximate level of Gal Oya Left Bank under the Water Management Project, it is assumed that the addi tional O&M costs will be Rs. 100 per acre (for a total of 65,550 acres) beginring in the 6th year, or Rs. 6,550,000 each year after year 6.
The increase in production costs presented in Table 27 prob ably overstates what will actually take place as all increases in production are assumed to have a cost equal to present average costs. This is a good assumption for increases in production caused by increased Jala acreage. However, that portion of increased production caused by increased yields shoulo lessen average costs. Preliminary results from ARTI studies show no significant difference in production costs due to reasonable variances in yield. Nevertheless, some costs will rise as a result of increased production. Therefore, the costs used in Table 27 are conservative in that they tend to understate the net benefits presented in Table 28.
108 Table 25. Impact of the ISM Project on Paddy Production and Gross Benefit, Polonnaruwa.
Year Added Paddy Production Added Gross Benefits (1000's bu) (1000's Rs)*
1 0 0 2 259 22,204 3 524 44,923 4 799 68,498 5 1,101 94,389 6 1,402 120,193 7 1,719 147,370 8 2,049 175,661 9 2,385 204,466 10 2,733 234,300
11 2,761 236,701 12 2,816 241,416 13 2,910 249,474 14 3,003 257,447 15 3,105 266,192 16 3,199 274,250 17 3,288 281,880 18 3,389 290,539 19 3,496 299,712 20 3,590 307,771
Benefits based on a Sri Lankan economic farm gate price of Rs. 4,100/T (Rs. 85.73/bu) for 1990 in 1983 dollars. (From Acres report based on the World Bank Commodity Price Forecast, July, 1984.)
109 Table 26. Polonnaruwa Capital and Non-Capital ISM Project Costs*
Year Capital Costs Non-Capital Costs Total ISM Project Cost (Rs. 000) (Rs. 1000) (Rs. 1000)
1 17,545 115,924 133,469
2 32,120 35,519 67,639 3 36,438 21,842 58,280
4 29,150 20,202 49,352
5 21,863 18,607 40,470
Total 137,116 212,094 349,210
Based on Rs. 1,800/acre capital cost with allocations by year being Rs. 100, Rs. 300, Rs. 600, Rs. 400 and Rs. 400. Rs. 2,000/acre for non-capital costs allocated by year being Rs. 200, Rs. 400, Rs. 600, Rs. 400 and Rs. 400. The project acreage is estimated as 65,550 acres.
Table 28 presents the incremerL'al net benefits associated with the ISM Project for 20 years. As one of the objectives of the ISM Project is to generate a system capable of sustained quality of operation, net benefits from the Project should continue beyond the 20th year. The cutoff was made at year 20 for computational con venience as including additional years would not change the conclusion reached in Table 28. The internal rate of return for the net benefits presented in Table 28 is 20.1%.
2. Gal Oya Right Bank
The assumptions used in the economic analysis of the Polonnaruwa District Tanks also apply to the Gal Oya Right Bank Canal system with a minor modification. The Sri Lanka Sugar Corporation, which cultivates approximately 10,000 acres of sugarcane in the Gal Oya Right Bank system appears to receive enough water to fully meet crop requirements. The ISM Project will probably have minimal impact here. Therefore, the 10,000 acres of sugarcane are not considered in the economic analysis.
110 Table 27. Added Economic Value of Paddy Production Cost
Year Added Paddy Production Added Paddy Production Costs* (1000 bu) (1000 Rs.)
1 0 0 2 259 11,033 3 524 22,322 4 799 34,037 5 1,101 46,903 6 1,402 59,725 7 1,719 73,229 8 2,049 87,287 9 2,385 101,601 10 2,733 116,426 11 2,761 117,619 12 2,816 119,962 13 2,910 123,966 14 3,003 127,92f; 15 3,105 132,27j
16 3,199 136,277 17 3,288 140,069 18 3,389 144,371 19 3,496 146,930 20 3,590 152,934
Based on a cost of Rs. 42.60/bu. This is the economic cost, including family labor valued at Rs. 25 per day used in the Acres report and compared to the financial cost of Rs. 40.15/bu reported for Polonnaruwa in "Cost Cultivation of Agricultural Crops for MabA, 1982/1983," Division of Agricultural Economics, Decfxber, 1983.
111 Table 28. Incremental Net Benefits of the ISM Project. (Using data from Tables 23, 24 and 25.)
Added Gross ISM Project Added O&M Added Production Total Added Net Benefits Year Benefits Costs Costs Costs Costs (l000s Rs.) (lO00s Rs.) (lO00s Rs.) (lO00s Rs.) (lO00s Rs.) (lO00s Rs.)
1 0 133,469 0 133,469 - 133,469 2 22,204 67,639 11,033 78,672 - 56,468 3 44,923 58,280 22,322 80,602 - 35,679 4 68,498 49,352 34,037 83,389 - 14,891 5 94,389 40,470 46,903 87,373 + 7,016
6 120,193 6,555 59,725 66,280 + 53,913 7 147,370 6,555 73,229 79,784 + 67,586 8 175,661 6,555 87,287 93,842 + 81,819 9 204,466 6,555 101,601 108,156 + 96,310 10 234,300 6,555 116,426 122,981 + 111,319
11 236,701 6,555 117,619 124,174 + 112,527 12 241,416 6,555 119,962 126,517 + 114,899 13 249,474 6,555 123,966 130,521 + 118,953 14 257,447 6,555 127,928 134,483 + 122,964 15 266,192 6,555 132,273 138,828 + 127,364
16 274,250 6,555 136,277 142,832 + 131,418 17 281,880 6,555 140,069 146,624 + 135,256 18 290,539 6,555 144,371 150,926 + 139,613 19 299,712 6,555 148,930 155,485 + 144,227 20 307,771 6,555 152,932 159,487 + 148,284 There are approximately 32,000 acres total under command of the Right Bank System. Excluding the sugar lands reduces the total to 22,000 acres. It is estimated that 18,000 acres are irrigated during Maha and 12,000 acres during YaJA for a present cropping intensity of 1.36. Approximately 4,000 acres in the tail of the system have never received irrigation water deliveriP 6ven though the infrastructure to do so exists. This is because water is over used in the upper parts of the system and, to a much lesser degree, system capabilities are limited under existing conditions.
Given these conditions, the following assumptions are applied to the Right Bank: (1) yields increase by 1% per year with or without the ISM Project; (2) JalA yields will equal MAbi yields in year 10 with the ISM Project; (3) increased O&M costs will be Rs. 100 per acre beginning in the 6th year with the ISM Project; and (4) the difference in production costs due to increased yields is Rs. 42.60 per bushel with the ISM Project.
Table 29 shows the estimated land and production for paddy under conditions without the ISM Project. Little information exists on yields on the Right Bank, so data from the Left Bank have been used to estimate present klm yields at 64 bu/ac and YAla yields at 52 bu/ac. Cropping intensity remains at 1.36. However, production would increase by 21% over the 20 years.
Table 30 presents expected production with the ISM Project. Maha yields increase at 1%. Yaa yields are presently 52 bu/ac and will equal jaha yields by the 10th year, after which yield increases will be limited to 1% per year. Cropping intensity will increase from 1.36 to 1.80 by year 10 under the ISM Project. This would be achieved by developing an additional 4,000 acres currently unused in ahA by year 5 and in YalA by year 10. It is assumed that cropping inten sities higher than 1.75 are limited by water availability during Jala. Production is expected to increase by 723 over the 20 years.
Table 31 presents the stream of expected incremental, gross benefits, and Table 32 shows the annual distribution of project costs separated into capital and non-capital expenditures. Table 33 con tains -the flow of expected value of increased costs per bushbl for incremental production. Table 34 shows the incremental beriefts attributable to implementing the ISM Project on the Gal Oya Right Bank. The internal rate of return is estimated 1o be 15.6%.
113 Table 29. Paddy Production in Gal OCye Right Bank without ISM Project.
Maha Yal a Total Year Acreage Yield Production Acreage Yield Producti on Acreage Yield Production (bu/Ac) (1,000 bu) (bu/Ac) (1,000 bu) (bu/Ac) (1,000 bu) 1 18,000 G4 1,152 12,000 52 624 30,000 59.2 i,775 2 18,000 64.6 1,163 12,000 52.5 630 30,000 59.8 1,793 3 18,000 65.3 1,175 12,000 53.1 637 30,000 60.4 1,813 4 18,000 65.9 1,186 7?,000 53.6 643 30,000 61.0 1,829 5 18,000 66.6 1,199 ,2,000 54.1 649 30,000 61.6 1,848 6 18,000 67.3 1,211 12,000 54.7 656 30,000 62.3 1,868 7 18,000 67.9 1,222 12,000 55.2 662 30,000 62.8 1,885 8 18,000 68.6 1,235 12,000 55.8 670 30,000 63.5 1,904 9 18,000 69.3 1,247 1S,UU 56.3 676 30,000 64.1 1,923 10 18,000 70.0 1,260 12,000 56.9 683 30,000 64.8 1,943
11 18,000 70.7 1,273 12,00 57.4 689 30,000 65.4 1,961 12 18,000 71.4 1,285 12,00) 58.0 696 30,000 66.0 1,981 13 18,000 72.1 1,298 12,000 58.6 703 30,000 66.7 2,001 14 18,000 72.8 1,310 12,000 59.2 710 30,000 67.4 2,021 15 18,000 73.6 1,325 12,000 59.8 718 30,000 68.1 2,042
16 18,000 74.3 1,337 12,000 60.4 725 30,000 68.7 2,062 17 18,000 75.1 1,352 12,000 61.0 732 30,000 69.5 2,084 18 18,000 75.8 1,364 12,000 61.6 739 30,000 70.1 2,104 19 18,000 76.6 1,379 12,000 62.2 746 30,000 70.8 2,125 20 18,000 77.3 1,391 12,000 62.8 754 30,000 71.5 2,145 Table 30. Paddy Production in Gal Oya Right Bank with ISM Project
Maha Yala Total Year Acreage Yield Production Acreage Yield Production Acreage Yield Production bu/ac (1000 bu) bu/ac (1000 bu) bu/ac (1000 bu) 1 18,000 64 1,152 12,000 52 624 30,000 59.2 1,776 2 19,000 64.6 1,227 12,620 54 681 31,620 60.3 1,908 3 20,000 65.3 1,306 13,240 56 741 33,240 61.6 2,047 4 21,000 65.9 1,384 13,860 58 804 34,860 62.8 2,188 5 22,000 66.6 1,465 14,480 60 869 36,480 64 2,334 6 22,000 67.3 1,481 15,100 62 936 37,100 65.1 2,417 7 22,000 67.9 1,494 15,720 64 1,006 37,720 66.3 2,500 8 22,000 68.6 1,509 16,340 66 1,078 38,340 67.5 2,588 9 22,000 69.3 1,525 16,960 68 1,153 38,960 68.7 2,678 10 22,000 70.0 1,540 17,600 70 1,232 39,600 70.0 2,772
11 22,000 70.7 1,555 17,600 70.7 1,244 39,600 70.7 2,799 12 22,000 71.4 1,571 17,600 71.4 1,257 39,600 71.4 2,828 13 22,000 72.1 1,586 17,600 72.1 1,269 39,600 72.1 2,855 14 22,000 72.8 1,602 17,600 72.8 1,281 39,600 72.8 2,883 15 22,000 73.6 1,619 17,600 73.6 1,295 39,600 73.6 2,915
16 22,000 74.3 1,635 17,600 74.3 1,308 39,600 74.3 2,942 17 22,000 75.1 1,652 17,600 75.1 1,322 39,600 75.1 2,974 18 22,000 75.8 1,668 17,600 75.8 1,334 39,600 75.8 3,002 19 22,000 76.6 1,685 17,600 76.6 1,348 39,600 76.6 3,033 20 22,000 77.3 1,701 17,600 77.3 1,360 39,600 77.3 3,061 Table 31. Impact. of the ISM Project on Paddy Production and Gross Benefit--Gal Oya Right Bank
Year Added Paddy Production Added Gross Benefits (:000 bu) (1000 Rs,)*
1 0 0 2 115 9,859 3 234 20,061 4 359 30,777 5 486 41,665 6 549 47,066 7 615 52,724 8 684 58s639 9 755 64,726 10 829 71,070
11 838 71,842 12 847 72,613 13 854 73,213 14 862 73,899 15 873 74,842
16 880 75,442 17 890 76,300 18 898 76,986 19 908 77,843 20 916 78,529
Benefits basqd on a 3ri Lankan economic farm gate price of Rs. 4,100/T (Rs. 85.73/bu) for 1990 In 1983 dollars. (From Acres report based on the World Bank Commodity Price Forecast, July 1984.)
116 Table 32. Gal Oya Right Bank Capital and Non-Capital Project Costs on the ISM Project.
Year Capital Costs Non-Capital Costs Total ISM Project Cost (Rs. 1000) (Rs. 1000) (Ws,1000)
1 10,670 20,380 31,050
2 21,230 20,350 41,580
3 21,120 13,578 34,698
4 21,120 12,618 33,738
5 14,080 11,598 25,678
Total 88,220 78,524 166,744
The project flow of net benefits is derived by combining Table 30 for Polonnaruwa with Table 34 for Gal Oya Right Bank. The result ing internal rate of return for the total ISM Project is estimated to be 18.9%. This is considered a conservative estimate based on the set of assumptions used.
Sensitivity Analysis
A sensitivity analysis was conducted to analyze the variability of key parameters such as costs and rate of benefit accrual. The following three cases were considered:
(1) project costs are increased by 20%;
(2) project benefits are decreased by 20%; and
(3) Yala yields do not equal Maha yields until the 20th year.
The internal rate of return for cases 1, 2, and 3 are 16.0%, 10.8%, and 16.4%, respectively. These results indicate that the project is most sensitive to a decrease in benefits; nevertheless, when yields increase at a slower rate as in case 3, the impact is much less. A 20% increase in costs would not have a large impact on the project internal rate of return.
117 Table 33. Added Economic Value of Paddy Production Cost, Gal Ova Right Bank
Year Added Paddy Production Added Paddy Production Costs* (1000 bu) (1000 Rs.)
1 0 0 2 115 4,899 3 234 9,968 4 359 15,293 5 486 20,704
6 549 23,387 7 615 26,199 8 684 29,138 9 755 32,163 10 829 35,315
11 838 35,699 12 847 36,082 13 854 36,380 14 862 36,721 15 873 37,190
16 880 37,488 17 890 37,914 18 898 38,255 19 908 38,681 20 916 39,022
* Based on a cost of Rs. 42.60/bu. This is the economic cost, including family labor valued at Rs. 25 per day as used in the Acres report and compared to the financial cost of Rs. 40.15/bu reported for Polonnaruwa in "Cost Cultivation of Agricultural Crops for Iaha, 1982/1983," Division of Agricultural Economics, December 1983.
118 Table 34. Incremental Net Benefits of the ISM Project Gal Oya Right Bank*
Added Gross ISM Project Added O&M Added Production Total Added Net Benefits** Year Benefits Costs Costs Costs Costs (1000 Rs.) (100 Rs.) (1000 Rs.) (1000 Rs.) (1000 Rs.) (1000 Rs.) 1 0 31,050 0 31,050 -31,050 2 9,859 41,580 4,899 46,479 -36,620 3 20,061 34,698 9,968 44,666 -24,605 4 30,777 33,738 15,293 49,031 -18,254 5 41,665 25,678 20,704 46,382 - 4,717
6 47,066 2,200 23,387 25,587 +21,479 7 52,724 2,200 26,199 28,399 +24,325 8 58,639 2,200 29,138 31,338 +27,301 9 64,726 2,200 32,163 34,363 +30,363 10 71,070 2,200 35,315 37,515 +33,555 11 71,842 2,200 35,699 37,899 +33,943 12 72,613 2,200 36,082 38,282 +34,331 13 73,213 2,200 36,380 38,580 +34,633 14 74,899 2,200 36,721 38,921 +34,978 15 74,842 2,200 37,190 39,390 +35,452 16 75,442 2,200 37,488 39,688 +35,754 17 76,300 2,200 37,914 40,114 +36,186 18 76,986 2,200 38,255 40,455 +36,531 19 77,843 2,200 38,681 40,881 +36,962 20 78,529 2,200 39,022 41,222 +37,307
*Data taken from Tables 31, 32 and 33. **The internal rate of return is 15.6%. Gal Oya Left Bank Canal System
ISM Project activities on Gal Oya Left Bank represent a con tinuation of Watr Management Project activities. The Water Management Project will complete the great majority of the work originally planned. It is likely that not all of the Water Management Project funds will be expended by December 1985. The difficulty in estimating the direct net benefits of the ISM Project on the Gal Oya Left Bank Canal system is to not include benefits that will be the result of Water Management Project efforts. Nevertheless, note that the estimated benefits presented in the project paper for the Water Management Project have not been captured as planned. As additional investment from the ISM Project is needed to reach the expected benefits.
Estimated costs for ISM Project efforts on the Left Bank average Rs. 444/acre per year--economic costs (Annex C). Estimated costs include increased O&M and capital expenditures. Since allocat ing costs will supplement on-going activities, this analysis will examine the required production increases to amortize ISM Project investment rather than estimate expected increases in yield.
Table 35 presents the flow of estinated economic costs (exclud ing inflation) for 20 years. The estimate includes the initial ISM Project costs for its 5-year life (Annex C) and the incremental O&M costs for years 6-20.
Table 35. Schedule of ISM Project Costs
Gal Oya Left Bank
Year Rs/Acre
1 578
2 553
3 392
4 360
5 335
6-20 100
120 To amortize these costs over 20 yearst yields would have to increase as follows in Table 36 for selected opportunity costs of capital:
Table 36. Increased Yields to Meet Selected Opportunity Costs of Capital
Opportunity Cost of Capital Yield Increase (percent) (bu/ac)
10 6.0
12 6.4
15 6.8
20 7.6
Amortization requires that MahA and YAla yields realize average annual increases of 3.0 bushels to 3.6 bushGlis per acre. This range is considered well within the ISM Project's level of achievement and indicates an internal rate of return of 10% for a 3.0 bu/ac Increasep and 2C% for a 3.8 bu/ac increase over present MbA and Yaia yields. Therefore, production increases need to average only 6.0-7.6 bushels per acre above present values (or a technological growth rate of 1% per year) each year to amortize the cost. These figures are not compounded over the 20 years, rather they are average annual increases. In other words, if present yields for Maha are 70 bu/ac and Jala 60 bu/ac, per acre yields would have to increase to 73-73.8 for MaJa and 63-63.8 for Y-al. This is very different from yields that increase by 3.0-3.8 per year resulting in a growth rate for Maha of 73 bu/ac, 76 bu/ac, 79 bu/ac, to 130 bu/ac at Year 20P which is not implied In the this analysis.
C. Intangible Beliefits
1. Capital Savings
As the Accelerated Mahaweli Project moves towards completing its construction phase, the GSL has announced its commitment to a policy of modernizing and improving existing irrigation schemes. This pol ;cy seems highly appropriate for realizing the potential of exist ing schemes to contribute toward increased food productiono farmer income and employment opportunity. In addition, there is the impor tant issue of equity for farm familles who earn their living from existing irrigation sch-mes. The older schemes appear to be losing their ability to provide a reliable and aCequdte supply of irrigation
121 water to all cultivated land, a problem further aggravated by the expansion of cultivated land under the command area of a scheme.
Much expansio1 is due to encroachment which, while illegal, has significantly increased the ability of an irrigation scheme to produce food and farmer income. For example; since 1972, the cul tivated area under major schemes in Polonnaruwa District has expanded by 45%. .iuc:i uf the expansion has been due to encroachment. While encroachment presents problems, it also represents an expansion of irrigated acreage that can take place without the infrastructure costs required for colonization schemes. Encroachment represents the role of private initiative in expanding irrigated acreage and often con verting surplus labor into capital good.
Thus, continued expansion of acreage also presents the oppor tunity to take advantage of Sri Lankan farmers' initiative and their ability to convert seasonal surplus labor into capital by converting land classified as highland into land that can be irrigated if reli able and adequate water is available. Such expansion offers an oppor tunity to economically expand potentially productive irrigated land. Consequently, Sri Lanka is challenged to meet the needs of any future expansion of irrigated lands under an irrigation scheme. In such situations, rehabilitation that restores a system to its original design would be inappropriate berause the irrigation channels would not have sufficient capacity to serve the area.
The potential for capital savings can be illustrated by com paring the proposed World Bank Major Irrigation Rehabilitation Project (MIRP), the AID-sponsored Water Management Project (WMP) at Gal Oya, and the proposed, AID-sponsored Irrigation Systems Management (ISM) Oroject.
The estimated cost of civil works per acre for MIRP is $255 (Rs. 6,375), while the estimated total project cost is $350/acre (Rs. 8,750 per acre). MIRP represents what appears to be the traditional high level of capital investment often found in rehabilitation projects.
The capital cost of pragmatic rehabilitation under WMP on the badly deteriorated Gal Oya Le'lt Bank Canal system will be $108 per acre, and total project costs will be $280 (Rs. 7,000) per acre which is comparable to the costs of MIRP. The purpose of the ISM Project is to find even more cost-effective methods for improving irrigation schemes using an approach referred to as essential structural improvement. The level of management will increase over time, and the structural improvements must be designed and implemented so they can meet likely future needs as well as current needs. Therefore, the essential structural improvement plan needs to evolve in a manner consistent with the level of management applied to a scheme.
122 Structural improvement is not an end in itself, but a means of con tributing towards achieving an appropriate level of management.
The estimated capital costs for the Polonnaruwa schemes under the ISM Project are Rs. 1,800 ($72) per acre (excluding contingency), and the total project cost is estimated to be Rs. 5,7]5 ($229) per acre. Capital costs for the Gal Oya Right Bank are Rs. 2,500 ($100) per acre (excluding contingency), and total project cost is estimated to be Rs. 4,740 ($190) per acre.
Two obvious benefits are that Sri Lanka would no longer depend on outside dcnors to sustain the productivity of its irrigated agriculture; and farmers, who tend to avoid risks, particularly if they are subsistance farmers, must have a stable irrigation system if they are to adopt the highly intensive farming methods required to obtain adequate incomes and realize the full potential for food production.
2. Opportunity Cost of Water
In major irrigation schemes, water is relatively more scarce than land. This is true even for irrigated land served supplemental water from the Mahaweli Project, such as in the Polonnaruwa District. This statement is particularly true for schemes such as the Gal Oya Irrigation Project. For example, not all of the land under command of the Gal Oya Right Bank Canal system can be irrigated during most Yala seasons because of water shortage. In such cases, the economic cost that can be justified for water conservation depends on the value of the water saved.
Valuing water is an inherently difficult problem, and it is important for policy-makers to have the best possible information. One approach to estimating the average value of wter is to divide the net revenue per acre (revenue less costs of prodI':tion, both in economic values) by the volume of water used by tV,at acre. This requires that measurements of net revenue and water use be available for the same site. In Sri Lanka, there are few Pvailable observations that satisfy reasonable criteria for data quality. One objective of the ISM Project is to provide such information through monitoring and eval uation.
For example, if the economic net revenue generated by an acre of land in Yala paddy is Rs. 4,500 and to produce this acre of paddy, 8 acre-feet of water are released from the tank, the value of the water is Rs. 563 per acre-foot. If operating rules and maintenance were to improve conveyance and field efficiencies so that only 6 acre-feet of water would be released from the tank, the average value per acre-foot would increase from Rs. 563 to Rs. 750 per acre-foot. If the two acre-feet of water conserved were used in the same way as the remaining six acre-feet of water, they would have a combined value
123 of Rs. 1,500. In this example, O&M costs up to Rs. 1,500 per acre per season could be economically justified to improve operating rules and upgrade maintenance sufficiently to conserve two acre-feet of water.
Few field measurements exist for irrigation channel water losses and consequent conveyance efficiencies, and there is practi cally no field data for on-farm water use or irrigation application efficiencies. In most cases (the one known exception apparently has unreliable data), the field measurements show considerably lower conveyance efficiencies than the official figures used to calculate water delivery schedules. In Uda Walawe, water use varied from 8.4 acre-feet to 24.4 acre-feet depending on location in the system. Even the lower figure is higher than most official estimates of water use. While such variations present serious problems, they also present significant opportunities for irrigation improvement programs.
Murray-Rust and Cherry report that variations in relative water deliveries to field channel inlets at Gal Oya were on the order of 15 times. A major reason for differences in water use from site to site is that the irrigation schemes are unable to equitably deliver water because of the deteriorating charnels and poor management practices.
One of the major opportunities for conserving water is by redistributing water within the schemes. Work at Gal Oya under the Water Management Project during the 1981 YalJe seaso., showed that significant water redistribution can take place uIthin the area served by a field channel. The impact on heavy water users who conserve water is usually minimal, though positive; while the impact on those who are then able to receive more reliable and adequate water is always significantly positive, The magnitude of the effect of water conservation can be estimated by carefully measuring water use, yields and costs for those who will use less water (often located at the head of a channel) and those who will have more water available (often located at the tail of the channel). Estimating the value of water permits the most effective water use on the farm, just as broad studies permit the most effective water use nationwide. One of the major objectives of the ISM Project is to develop more knowledge about the internal workings of the physical system through intensive field data collection. Then, improved management can be used to redistribute available water supplies equitably and on time.
Information on the opportunity cost (opportunity value) of water can be used not only to make decisions about water conservation, but to make decisions nationally about issues such as allocating Mahaweli Project waters. Such studies are already being done by the Mahaweli Development Authority.
124 VIII. SOCIAL SOUNDNESS ANALYSIS
A. Introduction
This analysis describes the participants in the ISM Project and the target population to determine what the motivations of par ticipants will be and how the Project will affect the target population.
The ISM Project will develop and demonstrate techniques for irrigation system management that will improve the reliability and control of water in major irrigation schemes. The target population, therefore, consists of the 250,000 families that support themselves by farming lands served by the 180 major irrigation schemes in the dry and intermediate zones of Sri Lanka. However, because only eight selected schemes will be used as sites for learning and demonstration, the direct beneficiaries of the ISM Project are the 55,000 families (about 300,000 people) farming in those zchemes. The eight schemes are: Gal Oya Left Bank and Right Bank in Amparal District, Parakrama Samudra, Giritale, Minneriya, and Kaudulla in Polonnaruwa District, and Ridi Bendi Ela and Hakwatuna Oya in Kurunegala District.
B. The Population of the Schemes
All these schemes were colonized; that is, the majority of the farmers were originally brought from the wet zone by the government and given land in these schemes. The previous inhabitants are called purlJfA villagers. The total population and the percentage of the population that are colonists varies widely among the schemes (Table 37). The Polonnaruwa schemes, except for Kaudulla, are the oldest. There, settlement began around 1950 an'd was largely completed by 1960. In Kaudulla, however, settlement continued into the late 1970's. In Gal Oya Left Bank, settlement began in 1953 and was largely completed by 1962. Settlement in Gal Oya Right Bank continued up until 1970. Ridi Bendi Ela and Hakwatuna Oya were expanded in the late 1950's and early 1960's.
In general, detailed information does not exist about these schemes. Statistics are usually not reported by irrigation scheme but by district or other administrative unit. One of the results of the ISM Project will be the development of data about the population for each scheme. However, a good start has been made for Gal Oya Left Bank under the Water Management Project. Much of the following is based on information from the Gal Oya Left Bank.
125 Table 37. Population of Irrigation Schemes
Schemes District Command Approx. Farm Approx. Area Population* % Purana (acres) Vi 1laaers** Gal Oya Left Bank Ampara 65,000 120,000 7 Gal Oya Right Bank Ampara 32,000 35,000 10 Parakrama S...udra Polonnaruwa 24,000 40,000 2
Giritale Polonnaruwa 7,500 16,000 2 Minneriya (Gal Amuna) Polonnaruwa 22,050 23,000 4 Kaudulla Polonnaruwa 12,000 32,000 Ridi Bendi Ela Kurunegala 6,500 12,000 40 Hakwatuna Oya Kurunegala 5,500 10,000 30
* The figures for the Polonnaruwa Scheme were calculated by the Polonnaruwa -jKachcher (District Headquarters). The rest are estimated. When compared with command areas, the Polonnaruwa figures appear unreasonable. The ISM Project will produce better estimates. ** These figures are based on reported and estimated puJrna landholdings.
In these schemes, the population is generally organized into nuclear family households, although extended family (three generation) households are not uncommon. The average household size is five persons. Normally, each household operates its own independent farm. However, in Gal Oya Left Bank, the phenomenon of joint farm operation by two or more households exists on about 7% of the irrigated land.
The schemes are divided into administrative units called "vi'lages" or "colony units." However, settlement is scattered. Exc,- * for some business centers, there are no population clusters. In (L. Oya Left Bank, it has been found that the colony units have
126 engendered little loyalty or group feeling. Instead, there are a multiplicity of social groups that often include many single purpose organizations such as death benefit societies, temple societies, women's groups and others. In addition, people maintain kinship ties all across Sri Lanka and marriages take place without regard for "village" or even district boundaries.
Three main ethnic groups are found in rural areas of Sri Lanka: Sinhalese, Tamils and Muslims. As Table 38 shows, the majority of the farmers are Sinhalese. Significant numbers of Muslims exist in only one of the Polonnaruwa schemes and in both of the Ampara schemes. Significant numbers of Tamils exist only in Ampara. The recent communal difficulties have been between the Sinhales6 and Tamils. Muslims are still regarded as neutral. The continuing com munal tension is not expected to afTect the ISM Project as there were no disturbances in Ampara District during the 1983 riots.
Farming supports the majority of households. On all of the schemes, irrigated land is planted almost exclusively in paddy. Polonnaruwa and Ampara Districts are considered Sri Lanka's "rice bowls." Only in small portions of the tails of these systems are other crops planted on irrigated land during Yaa] when there is insuf ficient water for paddy. Most farmers also plant the highland. These "house gardens" grow a variety of vegetables, trees, and occasionally, other crops. The significance of highland agriculture will be explored by the U.SAID-sponsored Diversified Agricultural Research Project. Only in a few areas, such as Kaudulla, do farmers cut chenas (tracts of land where slash and burn agriculture is practiced).
The amount of "colony land" given to settlers varied from 5 acres of lowland and three acres of highland to two acre5 of lowland and a half-acre of highland. The average is about three acres of lowland and one acre of highland. Since the development of the schemes, however, enterprising farmers have extended the irrigated land by irrigating highland plots, encroaching on reserved land, and using drainage water to irrigate additional lands. In addition, the natural increase in population has resulted in fragmentation of many of the original allotments. Also, leasees operate a significant number of farms.
Unfortunately, there is no good data on these changes in land tenure and use. Bringing additional land under irrigation is illegal. Allotments were not given in freehold and cannot be legally subdivided or even transferred without the permission of the Land Commissioner. Consequently, these changes are not reported. Although the Swarnabhoomi program is now giving allottees deeds to their land, the deeds are hedged with the same restrictions on transfer and subdivi sion as the original allotments. Studies in Gal Oya Left Bank indi cate that 14% of the irrigated farms are operated illegally through
127 Table 38. Ethnic Communities
Schemes District Approx. % Sinhalese % Tamil % Muslim Farm Population*
Gal Oya Left Bank Ampara 120,000 65 26 9 Gal Oya Right Bank Ampara 35,000 65** 10** 25** Parakrama Samudra Polonnaruwa 40,000 82 1 17
Giritale Polonnaruwa 16,000 98 1 1 Minneriya Polonnaruwa 23,000 99 .5 .5 (Gal Amuna)
Kaudulla Polonnaruwa 32,000 100 -
Ridi Bendi Ela Kurunegala 12,000 100 -
Hakwatuna Oya Kurunegala 10,000 100 -
* See footnotes to Table 37. ** Estimated by the author.
rental or share-cropping. In addition, fragmentation has reduced the average holding of irrigated land (including encroachments and irrigated highland) from the original 4 acres to 2.8 acres. The ISM Project will collect comparable data for the r(inaining schemes. The Central Bank reports an island-wide average income per paddy farmer of Rs. 23,000 in 1981-82. There is no disaggregated data on incomes for any of the schemes except Gal Oya Left Bank. In Gal Oya, the average income per farm household was about Rs. 28,000 in 1983 but it varied fromcn Rs. 28,150 at the head of the system to Rs. 25,100 at the tail. These finuros are significantly greater than the 1980 average income of Rs. 17,900 at the head and Rs. 18,800 at the tail. (This figure is higher than usual because water was delivered to this area in 1980 for the first time in over six years and for the last time until 1984). From the Gal Oya Left Bank figures, therefore, the farm households in the scheme appear to have close to the island
128 wide average income for paddy farmers. However, as the 1983 data from Gal Oya Left Bank shows, income varies greatly depending upon the reliability of the water supply.
On the other hand, the 1981-82 median monthly income per receiver in the dry zone, including Polonnaruwa and Ampara Districts, was Rs. 641; considerably below the median monthly incomes found everywhere else in Sri Lanka except in the Central Province, which includes the tea estates (Table 39). Kurunegala District falls within the Central Province, and is a low income area. Also, 1980 statistics on food stamps show that both Ampara and Kurunegala Districts had more people receiving food stamps (53% and 65% respectively) than the national average (49%). In Polonnaruwa, 43% of the people receive food stamps.
C. Distribution of Benefits
If paddy prices do not decline, the increased production that results from the ISM Project should increase farmer incomes. However, since Sri Lanka is almost self-sufficient in rice and has no immediate prospects of exporting rice, paddy prices may drop. Even so, farmers will be able to devote some land to other crops since the ISM Project will also improve water control. Thus, farmers can increase incomes by growing for the market.
Table 39. Median Monthly Incomes by Zones
Median Monthly Zone Income 1981-82 (Rs.)
North Central, Eastern and Southern Provinces 641
Northern Province 752
Western Province (excluding Colombo) 721
Central Province (including Uva and Kurunegala) 534
Colombo 966
Source: "Report on Consumer Finances and Socio-Economic Survey, 1981/82, Sri Lanka," Part I, Central Bank of Ceylon, 1984.
Most importantly, the ISM Project will reduce income ineq uities based on water distribution. In Gal Oya Left Bank, tail
129 farmers usually cannot grow a YalA crop because they receive no water. Improved water control will reduce water and income inequities within the schemes.
In Gal Oya Left Bank and Gal Oya Right Bank, there is a clear ethnic division. In both systems, Sinhalese farmers are at the head and middle, while Muslim and Tamil farmers are found at the tail. Even though the ISM Project will disproportionately benefit tail farmers, there should be no problem because farmers at the head will benefit as well. Equity may lessen resentment between the groups.
Improved Income will spread the benefits of the Project. A finding of the 1984 Diagnostic Analysis Workshop is that after food, the next priority for using income is farm inputs, followed by other household goods, and then by loan repayment and savings. Generally, the farmers can meet their own food needs. Therefore, much of the increased income should go into farm inputs, including labor. Having more money for labor will increase opportunities for local and outside persons to work. In addition, some of the increased income will be spent on goods, thus increasing the income of merchants and manufac turers well beyond the scheme.
Good roads serve all of the Project areas. Therefore, any increase in food production brought about by the ISM Project will also increase the availability of food for the whole country.
Gal Oya Right Bank has a particular problem concerning the distribution of benefits. The Sri Lanka Sugar Corporation has a large plantation covering some 10,000 acres in the middle and upper parts of the system. A Cabinet decision in 1974 gave the Sugar Corporation almost absolute priority to the water of the Gal Oya System. This power has, at times, been misused. For example, since the Sugar Corporation does not irrigate at night, downstream farmers depend upon the water flowing at night. Occasionally, Sugar Corporation employees fail to close field inlets in the afternoon and deprive the farmers of the usual night water deliveries. Because of its location in the system and its legal rights, the Sugar Corporation could garner most of the benefits of upgrading the Right Bank System. Therefore, an agreement must be reached between the Ministry of Lands and Land Development and the Sugar Corporation concerning the corporation's rights and duties with regard to the improvements effected by the ISM Project.
D. Participation by Officers
Government officers will participate in the Project in various roles. Of greatest importance are the officers from the Irrigation Department, the project managers and their staff from the Irrigation Management Division, and the institutional organizers.
130 The Irrigation Department is organized into three categories of employees: irrigation engineers, technical assistants, and low level workers including work supervisors and patrol laborers. Almost all of the top positions in the department, including director and deputy director, are held by engineers. The country is divided into ranges, each under a deputy director. Each range is divided into divisions which are assigned to irrigation engineers. For the most part, one irrigation engineer is responsible for each major scheme. Technical assistants help manage the scheme and work supervisors and patrol laborers work with the technical assistants.
The engineers generally are proud that they apply scientific methods to solve problems. One of the attractions of this Project for the participating engineers will be the new technology, including the micro-computers. In addition, because the Improvements involve redesigning and reconstructing canals and structures, the engineers will receive valuable professional experience.
Other groups within the Irrigation Department have lesser motivations. The technical assistants will receive training but cannot expect to advance as far; hence, they have less to gain. The low-level people hdve virtually nothing to gain, and to achieve effec tive participation will require pressure and encouragement from higher officials in the bureaucracy. In Gal Oya Left Bank, the Water Management Project has elicited the most enthusiastic cooperation from the engineers and the least enthusiasm from the low-level workers.
The most important field participants from the Irrigation Management Division are the project m,anagers. There will be one project manager at each scheme. Secause the Project will provide each participating project manager with a staff, they will probably par ticipate wholeheartedly. It is possible that the staff and their functions will come to be seen as unnecessary burdens. This problem cin ba prevented by training the project manager and the staff well.
The largest number of people assigned to this Project will be the institutional organizers (IOs). At Gal Oya Left Bank, young, idealistic people were chosen to be 1Os and were fired with an enthusiasm for wcrking with and helping farmers. However, IOs z also concerned about their futures. Sri Lanka does not contemplate creating a permanent group of IOs: the commitment required is so intense that few, if any, people can perform effectively as an 10 for more than a few years. Therefore, most of the IOs for the ISM Project will be taken on one- or two-year contracts. A few will be retained permanently to take over the administrative, supervisory, training, and monitoring functions of the farmer organization program. However, experience in Gal Oya has shown that when IOs are offered a permanent position elsewhere, most take it rather than finish their contracts. ARTI is currently experimenting with various Inducements to encourage IOs to stay until the end of their contractF.
131 E. Farmer Participation
Farmers play a direct and important role in the Project. Farmers are expected to form field channel groups that will operate and maintain field channels. Through the field channel groups, farmers are expected to help identify and solve water delivery problems. Field channel groups should be able to collect the O&M fee. Each field channel group will be asked to name a farmer representative to speak for the group to higher organizations, officers, and to other farmer representatives. Some of these farmer representatives will sit on a project committee chaired by the project manager for each scheme and will make important operations and maintenance plans and decisions.
As shown in Gal Oya Left Bank, field channel groups and higher organizations do not compete with other organizations. Farmers in settlement schemes are familiar with multiple overlapDing, single purpose organizations and have not avoided taking part in various organizations.
Farmers must devote time and effort to participate in the field channel groups. Evidence from Gal Oya suggests that farmers will be glad to expend the time and effort if it improves water reliability and availability, and if Irrigation Department officers respond positively to their problems. Farmers in Gal Oya became so enthusiastic about the program th c they held a "farmers' convention" In October 1984 to which they invited various dignitaries and numerous farmers from inside and outside the scheme (Annex B).
Farmers in different areas will have different degrees of motivation. Those in head regions have fewer water problems and so have less to gain from system improvements than others. Some in tail areas may have no prospect of getting water so that organizing cannot help. In Gal Oya Left Bank, the most enthusiastic farmers are those in the middle of the system. In the Polonnaruwa schemes, all areas get water so all should participate. However, participation is likely to increase from head to tail. In Gal Oya Right Bank, there is a large area in the tail that does not receive water. Unless improve ments result in water deliveries to this area, farmers here will probably not participate.
Farmer representatives must invest more time and energy than other farmers. Because they represent small groups -- 15 to 20 farmers -- the Gal Oya farmer representatives usually do not find the Job overly burdensome. Mostly they consider it a public service and do it for the prestige and recognition it brings. This same attitude will probably extend to the schemes in the ISM Project.
132 There is one potential conflict for farmer representatives. In all of these schemes, a set of farmers exists, called Yl vidanes, that have been elected under the Agrarian Seivices Act. The val vidanes are responsible for some of the activities that are expected of farmer representatives, but are selected differently and answer to the Agrarian Services Department. The law requires that the farmers pay them for their services. In Gal Oya, farmer representatives have been more effective water managers than the yl vtidanes. The Commissioner of Agrarian Services has indicated that he intends to change the election areas for . l iaes in major irrigation schemes to correspond to the areas uses to form field channel groups. When this occurs, the two systems should no longer conflict. The Ye vidanes can serve as the farmer representatives. Three obstacles exist in some areas that hinder the formation and functioning of field channel groups. In some parts of Gal Oya, many farmers lease land from the legal allottees. In such cases, the question has arisen of who should participate in field-channel group activities. Some leaseholders have refused to participate because they have no long-term stake in the land, and the legal allottees are not available. Farmers irrigating encroached land or highlands create a similar, but less severe, problem.
A second problem associated with land tenure is the existence in some areas of large disparities in landholdings on the same channel. In such areas, a large landholder may gain disproportionate benefit2 from field channel group activities, and the others may be reluctant to participate. This situat!ic exists on at least one channel in Gal Oya Left Bank. Although the full extent of this problem is not known, it is probable that these disparities are not widespread. Land-generated problems should be addressed in the train ing for institutional organizers so that solutions can be found in the field.
The third problem is that significant numbers of farmers depend upon drainage water from these schemes for irrigation. A few cases have been reported from Gal Oya Left Bank where water conserva tion of field channel groups has been frustrated by the actions of farmers who found their drainage water supply threatened. Irrigation water reuse must be investigated, followed by developing plans to deliver adequate water to the drainage land farmers. The Irrigation Department's practice of excluding such lands from the definition of an irrigation system makes this problem more difficult.
F. Impact on Domestic Water Supplies
The ISM Project may affect the availability of domestic water in the schemes. Currently, irrigation channels are used for bathing, washing clothes, and watering cattle and buffalo. Drinking water is usually taken from wells that are partially recharged by irrigation
133 water. In Gal Oya Left Bank, it is necessary to make regular issues of water for domestic purposes during the closed season. The Polonnaruwa schemes do not appear to depend upon irrigation water for domestic use. However, it is likely that changes in channel flows will have some impact on domestic water in all of the schemes. Reducing conveyance losses will lower wells in some areas, while increasing flows in other channels will raise well levels. Thus, at this stage, the exact affect is impossible to predict.
G. Impact on Women
Women will be participants in and beneficiaries of the ISM Project. Women are expected to benefit along with other household members through increased farm income. Evidence from Gal Oya Left Bank indicates that wives alone or Jointly with their husbands make more than three-fourths of all household expenditure decisions. Also, since women contribute significant agricultural labor, their oppor tunities to work will increase. In fact, labor opportunities may increase for women more than for men because some of the increased labor demands may originate in a shift from broadcasting paddy to transplanting, a task mostly done by women.
Evidence from Gal Oya Left Bank reveals that women actively partake in most agricultural decision-making. In addition, a sig nificant number of farms are operated primarily by women usually widows who have taken over the family farm. Although figures from Gal Oya Left Bank indicate that somewhat less than 7% of the households are headed by widows, the 1984 Diagnostic Analysis Workshop found one channel in Parakrama Samudra where widows operated 25% of the farms.
Discussions with farmers make it clear that there are no idt,;logical obstacles to women representing farmers in a field channel group,. Such participation has been observed in Gal Oya Left Bank. However, some hindrances may exist. The ISM Project will investigate this problem.
Lastly, in Gal Oya Left Bank, about a third of the 1Os have been women. The general opinion at ARTI is that women IOs have been at least as effective as men until they have married and started a family. Recruiting women IOs will continue during the ISM Project.
H. The Long Range Impact: Participatory Development
Two aspects of the ISM Project will have long range benefits to an extent impossible to predict. The training and experience given to the government officers will allow them to determine what informa tion is necessary for good irrigation managements to determine more effective ways of obtaining and managing the funds needed for irriga tion management, and to use more sophisticated management techniques. The ISM Project will spread the knowledge and lessons learned
134 throughout the Ministry of Lands and Land Development, improving management on all major schemes. Through the Irrigation Management Research Information Center at ARTI and other channels, the lessons learned in the ISM Project will be available to the other irrigation agencies in Sri Lanka, thus spreading the benefits of better irriga tion management.
The ISM Project expects and requires the active participation of the direct beneficiaries -- the farmers. This should increase self-reliance among the farmers making them more willing to work with government officers as equals to ensure that farm production needs are met. The October 1984 "farmers' convention" in Gal Oya Left Bank is a good example. The farmers there arranged a large meeting, invited the Minister of Lands and Land Development, the Minister of Agricultural Research and Development, and other officials, and discussed items of direct concern to them. Such self-reliance, when coupled with the willingness of the government to respond positively, offers great potential for sel f-devel opment.
135 IX. ADMINISTRATIVE ANALYSIS
A. Introduction
Three government agencies are responsible for irrigation matters. The Mahaweli Authority of Sri Lanka in the Ministry of Mahaweli Development oversees the construction and management of all of the subsystems of the Mahaweli Project. The Department of Agrarian Services within the Ministry of Agricultural Development and Research is responsible for all "minor" irrigation systems -- those serving less than 200 acres. The Irrigation Department and the Irrigation Management Division, both within the Ministry of Lands and Land Development, are responsible for "major" irrigation systems -- those serving more than 200 acres. Because the problems within the three categories are somewhat different, and because the agencies are located in three different ministries, the ISM Project will focus only on major irrigation schemes and thus will work with the Ministry of Lands and Land Development. However, lessons learned will be avail able to the other agencies.
Created in 1900, the Irrigation Department traditionally has managed major irrigation schemes. Until recently, the Irrigation Department focused on developing new irrication systems, particularly in the dry zone. Most of the officers are civil engineers, and the top officers have gained professional credentials through construction activities. Currently, however, the opportunities for developing new irrigation systems are rapidly disappearing and the Irrigation Department must now focus on operating and maintaining current systems more efficiently.
Because of the inherent problems in making this shift in a long-established organization, the MLLD has created the Irrigation Management Division to handle functions not currently handled by the Irrigation Department. The IMD's status is not yet clear. Most of the employees will be contracted to avoid building a large, permanent cadre. This indicates that the IMD may be a temporary organization that exists only until the Irrigation Department overcomes certain problems. However, the Minister of Lands and Land Development and other high officials support institutionalizing IMD functions. Therefore, although the IMD may not exist as a separate body in the next few years, the functions and positions described here will prob ably continue within the MLLD.
137 B. ISM Project Administration
The primary implementing agency for the ISM Project will be the MLLD. A project director, responsible for day to day activities in the project, will be appointed and will answer directly to the Secretary/MLLD. Three project deputy directors will be appointed within the IMD; they will be responsible, respectively, for the farmer organization program, the financial management program, and the monitoring, evaluation and feedback program (Figure 17). A Project Deputy Director for Operations and Maintenance will be appointed in the Irrigation Department.
To oversee the project, a Project Coordinating Committee will be established with the following members:
Secretary/MLLD - Chairman USAID Representative - Observer and Advisor Project Director - Secretary Director/Irrigation Management Division Director/Irrigation Department Director/Water Resources Development Government Agent/Pol onnaruwa Government Agent/Amparai Government Agent/Kurunegala and representatives from:
Ministry of Agricultural Development and Research Department of Agriculture Department of Agrarian Services Agrarian Research and Training Institute Sri Lanka Institute of Development Administration Ministry of Finance and Planning
The Coordinating Committee will meet quarterly or more often as necessary. The Committee will review project progress and performance, prepare progress and evaluation reports, approve research plans, award contracts for project research, and give direction and support to the project.
The IMD and the Irrinition Department will handle project activities. The Irrigation Department will oversee operations and maintenance planning and performance, structural improvements, and water monitoring along with normal day-to-day operations. The IMD will be responsible for other aspects of monitoring, for the farmer organization program, and for financial systems development.
138 Figure 15. Irrigation Systems Management Project Organization
Legend Technical Asistance Coordination & Csimunication
C*Direct * Authority a Information Flow- Coordination .4 0. Committee 0. r.5 1% ontact PROJECT DIRECTOR .tt Research
n iIrrt .t .Division Irrigation Department
2.1. FarmerManitering Org. &Eval. Administrative Functional & TA Tea= J 3. Financial Mgmt. Divisions 4. Training - PASE
TA Tn. .. . Trining -r. Staff
IGovt. Agent
DAC Subcom-mittee
M1 E Range DO T Subject matter PrSpecilstct Ma
-Cn A
4.Admin.Sroject teep 4.op.Tt g
I.Monitaring E.IAmn upr
LwatFamP Reperesenttives Managerul Fames Orization 2.Farmer~ OrU.sers...,.,.....~m,..~ ~~~~~~~Wae 2Oprts'dmn upr
3.Pies.epor \ / J3.M inte1n9 In addition, training will be carried out by the Galgamuwa Irrigation Training Institute, the Project for Advr..cing Settlement Expertise, the Agrarian Research Training Institute, the University of Peradeniya, the University of Moratuwa, and the Sri Lanka Institute of Development Administration. The Agrarian Research and Training Institute and the international Irrigation Management Institute will carry out research activities.
1. The Irrigation Management Division
Since the Irrigation Management Division of MLLD began in April 1984, the present analysis and the planned organization may need to change as the IMD develops and its status changes. Currently, the Director of the IMD is assisted by an additional director and five deputy directors, each responsible for different functions including planning and progress, administrative services, operations and maintenance, rehabilitation, and education and publicity. The posi tion of Deputy Director for Finance is unfilled. The IMD has provi sions for a set of advisors: one each for agronomy, agricultural economics, ard ei~qneering. The additional director serves as the agricultural economic advisor; the other two advisory positions are not filled. The IMD plans to establish a position for Deputy Director of Institutional Development, pending Cabinet approval.
Currently, the IMD has a support staff of 10, which will gradually increase to 26. Two other categories of officers - project managers and institutional organizers - will report to the IMD.
The IMD manages the INMAS program, the collection and disbur sement of the newly established operations and maintenance fee, the World Bank funded Major IrrigationRehabilitation Project, and several parts of the ISM Project.
INMAS
In 1982, the integrated Management of Major Irrigation Systems Program began as an experiment within MLLD to improve the coordination of government services, including the supply of water, to the farmers of major irrigation schemes. In addition, it encourages farmer par ticipation in the management of irrigation schemes.
The INMAS program appoints a project manager for each major irrigation scheme who chairs a project committee of farmer and govern ment representatives. Represented agencies should include the Department of Agriculture, the Irrigation Department, the Department of Agrarian Services, local cooperatives, banks, and the Paddy Marketing Board. The project committee makes basic operation and maintenance decisions, including allocating the land to be cultivated, scheduling cultivation, and developing a maintenance plan. Note that
140 except for the last subject, decisions must be ratified at a cultiva tion meeting held according to the provisions of the Irrigation Ordinance. The INMAS program also provides for developing farmers' organizations on field channels and the selection of farmer representatives. In turn, the farmer representatives select the farmer representatives who sit on the project committee.
Originally, the INMAS program chose project managers from among existing officers in the original 24 schemes. Most of the officers chosen were irrigation engineers. Cooperation among officers has not developed as expected, in part because the part-time project managers cannot devote enough attention to the job and because the project managers have no influence over officers in other departments. In addition, farmer organizations have failed to develop in most of the schemes, largely because the existing officers lack the time and knowledge to successfully create viable organizations.
To remedy this situation, the IMD plans to appoint full-time project managers in some of the schemes. The new project managers will be seconded from other government agencies to the IMD to serve three to five years before they return to their own agencies. Further, the MLLD, the Ministry of Agricultural Development and Research, and other agencies have agreed that all local officers in INMAS schemes will be responsible to the project manager.
With funds from projects such as the Major Irrigation Rehabilitation Project and the ISM Project, the IMD plans to hire experienced institutional organizers from Gal Oya. One 10 will be appointed to each irrigation scheme as assistant project manager responsible for creating farmer organizations. In addition, other people will be recruited and trained to work as IOs in schemes to be rehabilitated or upgraded. Current plans are to recruit 27 lOs, of which about 15 new recruits will come from the Land Conissioner's Department.
The INMAS program forms the framework for ISM Project organization and for most of the artivities of the IMD.
Operations and Maintenance Fees
The IMD also distributes the funds collected through the new operation and maintenance fee. These fees are being collected from farmers on major irrigation schemes for the first time. The exact way the money will be distributed has not yet been worked out. Some suggest keeping it in each district for distribution to the irrigation scheme in the same anount collected from the scheme. Other plans include bringing the money to Colombo, and then funneling it to the Irrigation Department through the IMD. In either case, "the, 'ley should be spent on operating and maintaining irrigation schems according to plans approved by the Project Committees in each INMAS
141 scheme. Who will collect the fees is unclear. To date, a government agent in each district has made arrangements for fee collection.
The procedures for collecting and using these funds need to be clarified. Since the MLLD intends for the IMD to take charge of this effort, the ISM Project will assist the IMD. IMD will need to fill the Deputy Director/Finance position and provide him with adequate support. The IMD will also need to train the project managers so that administrating these funds will proceed smoothly.
The Major Irrigation Rehabilitation Prolect
The IMD is the primary implementing agency for the Major Irrigation Rehabilitation Project (MIRP). This World Bank funded project begins in 1985 and will rehabilitate seven major irrigation schemes in the north central and northwestern parts of the country. The additional director of the IMD has been appointed project coor dinator of MIRP.
The MIRP is essentially organized like the proposed ISM Project except that the ISM Project Director reports directly to the Secretary/MLLD, and MIRP funds activities in the Ministry of Agricultural Research and Development as well as in the MLLD. For MIRP, the Irrigation Deparitnent performs all redesgn and reconstruc tion activities and plans the operations of the rehabilitated systems. IMD develops farmer organizations and aids strengthening the scheme management. IMD contracts research and evaluation to other agencies; however, the great bulk of MIRP activities are performed by the Irrigation Department. Of the total cost of 39.9 million dollars, 88% (35.0 million dollars) goes to Irrigation Department activities.
MIRP and the ISM Project complement each other. Where MIRP places little mphasis on management, the ISM Project focuses on management. Improved management will help get the expected benefits out of the large GSL investment in construction through MIRP. Since the same IMD personnel are involved, the ISM Project contributions to IMD will directly benefit MIRP, and the Irrigation Department's train ing efforts and experience should also spill over to MIRP.
ISM Project Respcnsibilities for IMD
The IMD will be directly responsible for three major aspects of the ISM Project: monitoring and evaluation (other than water measurement), organizing the farmers' program, and developing finan cial systems. For the ISM Project, IMD will need to recruit a sig nificant number of persons (Table 40). Currently the ISM Project plans to take these persons on contract or secondment.
142 Table 40. IMD Additional Staffing Required
Positions Numbers
Col ombo
Deputy Director (Institutional Development) 1 Assistant Deputy Director (Institutional Development) 2 Deputy Director (Monitoring, Evaluation, & Feedback) 1 Deputy Director (Financial Management) 1 Additional support personnel (secretaries-3, drivers-3) 6 Financial officers 9 Monitoring officers 3
Disti'ict*
Agronomists 2 Agricultural economists 2 Soci ol ogi sts 2 District financial officers 3 Scheme**
Assistant project managers 9 Institutional organizers*** Data collection personnel , 54 Project financial officers 9
* Include one financial officer for each of the three districts, plus subject matter specialists for the MEF teams in Pnlonnaruwa and Ampara. ** Divided among the nine project managers (3 for Gal Oya Left Bank; 1 each for Gal Oya Right Bank, Parakrama Samudra, Giritale, Minneriya, Kaudulla, and Ridi Bendi Ela). ** The number of IOs is not fixed. It rises from approximately 130 at the end of the first year to approximately 250 at the end of the third year, and then falls to about 90 at the end of the Project. It should fall further as IOs are withdrawn from the schemes.
143 Monitoring and evaluation will require recruiting personnel at three levels. At the top, a team of experts in the various dis cipli-3s will oversee field data collection and develop analytical and report procedures for management information and project evaluation. The Water Management Project has begun developing such a team. A team in Polonnaruwa and one in Ampara will directly oversee data collection. These teams will consist of graduates in agronomy, agricultural economics, and sociology. Finally, each project manager will have six persons to collect and analyze data under the guidance of the district teams. Because these persons will be attached to the project manager, he will have access to the data and can suggest what information he needs to do his job. With his help, monitoring can turn into effective management information.
Organizing farmers will require many institutional organizers. IMD has already arranged to recruit 40-50 for the ISM Project and MIRP. These should include persons with 10 exporience in Gal Oya who can s;upervise the farmers' organization program in each scheme as assistant project manager. However, the ISM Project alone will require more than 800 person-years of 10 labor over and above the assistant project managers. The necessary personnel should be recruited on two-year contracts. Only the most dedicated should serve in administrative or supervisory roles. To han"-e this many IOs, the IMD will also have to recruit two persons to ass.. " .4,e Deputy Director for Institutional Development. One of the assistants will oversee recruiting and training; the other will supervise monitoring.
To develop financial systems, the IMD should recruit the Deputy Director/Finance as soon as possible. He will need support from nine financial officors in Colombo, plus a financial officer in each district and one attached to each project manager. 2. The Irrigation Department
Unlike IMD, the Irrigation Department is well-established and fully staffed. The core groups of the Irrigation Department are engineers and technical assistants. Because of the boom in the Middle East and in Africa, many engineers left the country a few years ago while others joined Mahaweli. A severe shortage of engineers resulted in the Irrigation Department. Now those vacancies are filled with recent graduates who lack experience. Thus, training is of major importance.
In Colombo, the Irrigation Department is organized into several major divisions each headed by a deputy director or senior deputy director. In the field, the country is divided into ranges, most of which correspond to districts. Each range is headed by a range deputy director, and each range is divided into sections headed by irrigation engineers. Usually, one irrigation engineer is respon
144 sible for one large irrigation scheme except at the Gal Oya Left Bank, which is divided among three irrigation engineers: one assigned to the Batticaloa Range and the other two assigned to the Ampara Range. All the other schemes included in the ISM Project are assigned to a single irrigation engineer.
For operations and maintenance, each scheme is divided into technical assistant.areas (Table 41). Within each area, the technical assistant operates the gates, sees that approved maintenance is done, and solves problems. Each technical assistant has one or more work supervisors and several patrol laborers to help. Additional technical assistants are assigned to each irrigation engineer's division for particular purposes. For example, each irrigation engineer has a senior technical assistant for assistance. Also, the irrigation engineer for the Kaudulla Tank irrigation Scheme has a technical assistant assigned to collect data for the studies being sponsored by the Hydraulics Research Station, Wallingford, England. Other engineers and technical assistants are assigned to the range deputy director for specific purposes.
Table 41. Irrigation Department Field Organization
Scheme Range Division Tech. Asst. Units
Gal Oya Left Bank Ampara Ampara 5 Ampara Kalmunai 1 Batticaloa Padiruppu 3
Gal Oya Right Bank Ampara Ampara 4
Parakrama Samudra Polonnaruwa Polonnaruwa 7
Minneriya (Gal Amuna) Polonnaruwa Hingurakgoda 5
Giritale Polonnaruwa Hingurakgoda 2
Kaudulla Polonnaruwa Kaudulla 3
Ridi Bendi Ela Kurunegala Nikaweratiya 1
Hakwatuna Oya Kurunegala Hirlyala 2
In addition to the engineers, technical assistants, and field laborers, the Irrigation Department also employs support personnel, including accountants, clcrks, draftsmen, and mechanics.
145 For the ISM Project, Irrigation Department personnel handle operations and maintenance, water monitoring and structural improvements. These activities will be largely handled by existing irrigation engineers and technical assistants. However, additional technical assistants and work supervisors will be assigned to each irrigation engineer's division to help survey and measure water. In the Gal Oya Left Bank systems the Project will support increasing the staff as recommendud for O&M by the current consultant to the Water Management Project (Table 42). The range deputy director should support these efforts. In Colombo, appointing a senior Irrigation Department official as Deputy Project Director for O&M will provide support. Irainn
Six institutions will train people for the ISM Project. General training for project managers will be conducted by the Project for Advancing Settlement Expertise (PASE) at the request of IMD. PASE is a United Nations Development Fund project within MLLD that trains people for and researches settlement schemes, including the irrigation schemes within this Project. PASE, a pilot project, will determine the value of establishing a settlement training and research institute within MLLD. PASE has already undertaken four training programs for project managers, and is staffed by a sociologist, a management specialist, an agricultural economist, and a geographer. PASE also calls on specialists from other institutions. United Nations Development funding for PASE will end in March 1985. However, the head of PASE expects funding to be extended. If not, PASE training will have to be taken on by IVD directly or turned over to SLIDA.
Training project managers, financial officers, and others in financial management will be undertaken by the Sri Lanka Institute of Development Administration (SLIDA), an arm of the Ministry of Public Administration. SLIDA has 23 faculty members, all with degree; and experience in public administration. The Financial Management Division of SLIDA already teaches four specialized courses in finan cial management. However, it does not yet have the necessary back ground in irrigation. Pre-project studies of the financial systems in irrigation will give SLIDA the background. SLIDA is also weak in computer capabilities. However, two SLIDA faculty members have train ing in computer programming and use, and the institute is scheduled to obtain a computer in early 1985. Strengthening their computer objec tives will be achieved with an additional computer and technical assistance and training.
146 Table 42. Irrigation Department Additional Required Staff
Positions Numbers
ISM Project Schemes (other than Gal Oya Left Bank)*
Technical assistants 27 Water supervisors 27
Gal Oya Left Bank**
Irrigation engi neers 4 Technical assistants 10 Other professionals 6 Non-professional s 200
* Divided among the seven schemes. ** These figures are approximate and are subject to refinement of the Gal Oya Left Bank preventive maintenance plan.
Both initial and in-service training of institutional organizers will be undertaken by the Agrarian Research and Training Institute (ARTI). Under the Water Management Project ARTI directed the Gal Oya farmers' organization. Although to institutionalize the approach the IOs will be managed by IMD, ARTI has the necessary back ground and skills to train 1Os. Of the forty research and training officers at ARTI, eight specialize in irrigation management. Of these, five have trained IOs. One will travel to the U.S. for a degree in education and training. For those specialties not at ARTI, the research and training officers have others they can call on for help. Finally, ARTI is creating a Training Division to handle the ISM Project training.
The Irrigation Department's Galgamuwa Irrigation Training Institute (GITI) will train irrigation engineers and technical assis tants in technical matters. Under the Water Management Project, the facilities and staff of GITI have been upgraded for training. GITI now has eight full-time staff in technical subjects and adequate hostel and classroom facilities for groups of 60 trainees.
The University of Moratuwa will train staff in using monitor ing techniques with micro-computers. The civil engineering faculty currently includes three members who specialize in water and irrigation, one of whom will be directly involved in the ISM Project monitoring, evaluation and feedback program. In addition, the University of Moratuwa is a leading center in computer science.
147 The University of Peradeniya will provide training and assis tance in computerized irrigation system modeling. The engineering faculty has four members who specialize in water and irrigation. In additionp it has a growing group of computer scientists. Research
ARTI will continue the research begun under the Water Management Project into obtaining farmer participation. In addition, ARTI will be asked specifically to observe and report on the results of the INMAS program in the Hakwatuna Oya Scheme in Kurunegala District. I
The institutions encouraged to do other research under this Project include ARTI, the University of Moratuwa, the University of Peradeniya, and the International Irrigation Management Institute (Annex F).
The Project Director and Coordinating Committee will control research funds. The institution should prepare research proposals that include a detailed plan of procedure and budget. Upon approval by the Project Directorp Coordinating Committee and USAID, the neces sary funds will be made available. The project director can call on IMD specialists in various fields for technical evaluations of the proposals if necessary.
The Project Director can request a proposal when a need is identified. However, the institutions are also encouraged to submit research proposals on their own.
Technical Assistance
The ISM Project will supply expatriate technical assistance tc the Project (Table 43).
148 Table 43. Long-Term Technical Assistance
Team Leader Affiliation Location
Team leader, financial and i rrigati on management speciali st IMD Col ombo
Farmer organization specialist and research sociologist/anthropologist IMD Colombo
Computer specialist IMD Colombo
Irrigation engineer ID* Ampara
Agricultural economist IMD* hnpara
Agronomist IMD* Ampa ra
Irrigation engineer ID* Polonnaruwa
Agricultural economist IMV* Polonnaruwa
Agronomi st IMD* Polonnaruwa
Because IMD has no district organization, all of these persons will be housed together in the offices of the respective Range Deputy Director of Irrigation.
149 X. TECHNICAL ASSISTANCE REFERENCE
A. Introduction
Collaboration between a firm (engineering consultant or other) and a university when submitting a proposal is encouraged. Collaboration should provide the best combination of improvement strategies for the ISM Project.
B. Scope of Work for Consultant Team
1. Assist the Ministry of Lands and Land Development through the Irrigation Management Division and the Irrigation Department and assist farmers through farmers' organizations to implement a comprehensive unerations and maintenance system that will sustain renewal of the irrigation facilities, increase agricultural production through reliable and adequate water deliveries, and generate more rural employment and an improved standard of living for rural farm families. These goals will be achieved by:
OC %',cting an annual operations survey and an annual main rei, :e survey.
* Implementing essential structural improvements for low control and water measurement.
eDeveloping a maintenance plan and implementing it annually, doing the most important items first.
* Developing discharge ratings for control and measurement structures.
*Measuring losses in conveyances, in distribution, and on the farm.
* Developing a water operations plan and implementi'g it seasonally.
O Developing, refining and imp'!mnentirig an operations model weekly for the micro-computer.
eRefining maintenance plans and ranking maintenance needs.
O Developing and implementing a preventive maintenance plan.
151 " Developing an operations computer model to apply and refine
daily water deliveries.
" Developing other components as needed during implementation.
2. Assist the Irrigation Department to support the improved, comprehensive operations and maintenance procedures through in-service training at the Galgamuwa Irrigation Training Institute for irrigation engineers, technical assistants and work supervisors. The training would focus on the specific job descriptions and skills required for irrigation engineers, technical assistants and work supervisors. The ISM Project would work with and help the University of Peradeniya train the irrigation engineers and technical assistants to use the micro-computer operations mudel.
3. Help the Irrigation Management Division implement the farmer organizational component of the ISM Project by working with the INMAS program. ARTI would conduct initial and in-service training and the ISM Project would consult on implementing organizational work and monitoring, evaluating and obtaining feedback on the progress of the program, the work of the institutional organizers, and the strength and capabilities of the evolving farmers' organizations.
4. Help the Irrigation Management Division implement the INMAS program with in-service training for project managers and assistant project managers on basic implementation management conducted by MLLD's PASE program.
5. Assist the Irrigation Deparinent and the IMD to develop, implement, refine, and eval-ate the monitoring, evaluation and feedback system (MEF) developed for the ISM Project. The consultancy would include systematizing operations, training personnel on the Job, computerizing the system, and helping refine the procedures over the life of the project so that the system would produce monthly, seasonal and annual reports on irrigated agricultural performance to guide managers in the IMD and the Irrigation Department. This would also include working with the University of Moratuwa to train IMD and Irrigation Department personnel to implement MEF.
6. Assist the Irrigation Department and the IMD to develop, implement, refine, and evaluate the financial management system developed for the ISM Project. Consultancy would include systematizing the collection of irrigation fees; bookkeeping at all levels of the project, including the farmers' field-channel organizations; reporting collections and expenditures; and aggregating information about the
152 system. The Irrigation Department and IMD managers would use accounting principles to analyze costs and returns from fee collection. The ISM Project would work with SLIDA to train the Irrigation Department and IMD personnel to implement the financial management system.
7. Help the Irrigation Department and IMD select research topics and competent contractors to conduct research on irrigation policy, system management and other related issues throughout the life of the project. Possible contractors include IIMI, SLIDA, ARTI, the University of Peradeniya, and the University of Moratuwa. Appropriate disciplinary team members would also participate in the annual review of rasearch contract progress reports.
8. Help the Irrigation Department and IMD select training topics and competent training contractors to conduct courses on financial management; monitoring, evaluation and feedback; farmers organizations; syst& operations modeling on micro computers; and other related issues throughout the life of the project. Probable contractors include SLIDA, ARTI, the University of Moratuwa, and the University of Peradenlya.
9. Assist the GSL agencies with preparing all equipment/commodity lists required for the project and with making the final selection, establishing specifications, procuring equipment, clearing at post, utilizing heavy equipment, and developing specialized training courses.
10. Provide supervision, management and logistics in Sri Lanka for all expatriate personnel tinder the contract.
11. Develop annual reports, annual workplans, life-of-project workplans, mid-project and end-of-project reports in col laboration with the GSL project director, delineate the responsibilities of both consultants and GSL personnel. Plans will be based on operational requirements and modified as conditions in the project require. All workplans will be subject to approval by USAID.
12. Participate as required in technical evaluations in conjunc tion with the GSL and USAID at specified junctures during the project.
C. Estimated Level of Effort
The total estimated effort for long- and short-term expatriates to complete the goals of the ISM Project is 376 person months at a cost of $5,640,000 (Tables 44 and 45).
153 Table 44. Estimated Level of Effort for Long-Term Consultants
Position/Location Specialization Person-Months Cost(00
Team leader in Colombo Engineering management 60 900 w/financial management and mechanical engi neering experience
Farmer organization Sociologist with practical 24 3EO specialists in Colombo farmer organization rotating among 3 and project monitoring district sites experience
Computer specialist Computer information 12 180 in Colombo rotating systems and data among 3 district sites management
Irrigation engineer in Agricultural engineer 60 900 Polonnaruwa with O&M, monitoring and eval uation experience
Agricultural economist Agricultural economics w/ 24 360 in Polonnaruwa financial management experience
Agronomist in Agronomy w/mechanical 18 270 Polonnaruwa engineering experience
Irrigation engineer Agricultural engineer 60 900 Gal Oya/Amparai with O&MD monitoring and eval uation experience
Agricultural economist Agricultural economist w/ 24 360 Gal Oya/Amparai financial management experi3nce
Agronomist in Gal Oya/ Agronomy w/monitoring and 18 270 Amparai evaluation experience
Total Long-Term 300 $4,500
Cost data should not be included in Request ror Proposal. Cost for each consultant includes firm overhead; travel including vehiclest housing, and education; and other costs.
154 Table 45. Estimated Level of Effort for Short-Term Consultants.
Position/Location Person-Months Cost(S)*
Farmer organization special ist** 6 90
Agroromi st*** 12 180
Agricultural economist**** 12 180
Water management design engineer 6 90
Agricultural systems engineer 10 150
Training specialist at GITI 15 225
Training specialist at PASE 15 225
Total Short-Term 76 $1,140
* Cost data should not be included in Request for Proposal. Cost for each consultant includes firm overhead; travel including vehicles, housing, and education; and other costs. ** Short-term farmer organization specialist should be completed by the long-term farmer organization specialist if appropriate and feasible. *R* Short-term agronomist should be completed by the long-term agronomist if appropriate and feasible. * **,Short-term agricultural economist should be completed by the long-term agricultural economist if appropriate and feasible.
D. Logistic Support and Cost
While in Sri Lanka, the contractor's personnel will be provided with office space, office equipment# and interpreter/secretarial services by the GSL. The contractor will supply all other required logistic support.
Note that all persons except citizens aDd permanent residents of Sri Lanka involved in implementing this project will be, under Sri Lankan law, exempt fror, paying income taxes and personal property tax on articles destined for their private use (including vehicles and furniture). Duty free imports will be allowed for personal property,
155 consumable goods and for goods subsequently withdrawn upon departure. Goods sold in Sri Lanka will be subject to GSL regulations.
Also, the following is provided to estimate costs:
Figure 16. Cost Estimates for Housing, Education and Per Diem
Housing or Quarters
Allowance: Colombo at $14,000/annum Other locations at $8,000/annum
Differential: 20% for all Sri Lanka posts
Education Allowance
At post $ 300 Away from post $10,000 Unlisted posts at post $ 1,500 Away from post $ 1,500 Colcombo At post $ 1,500 Away from post $10,000
Per Diem for Short-Term Personnel
Colombo not to exceed $90/day Other locations at $70/day
156 E. Implementation Plan for Irrigation Systems Management Project
Table 46. Technical Assistance Requirements in Person-Months
Year One Year Two Year Three Year Fottr Year Five 1986 1987 . 1988 1989 1990 LONG-TERM
COLOMBO
Team Leader 60
Farmer org. specialist 24
Computer specialist 12
POLONNARUWA
Irrigation engineer 50
Agricultural economist 24 Agronomist 18
AMPARAI
Irrigation engineer 60 Agricultural economist 24 Agronomist 18
157 Table 46. (continued)
Year One Year Two Year Three Year Four Year Five 1986 1987 1988 1989 1990 SHORT-TERM Farmer org. specialist 2. 2 2
Agronomist 1 1 1 1. 1 Agronomist 1 1 1 1 1 1 Agricultural economist 2 2 2
Ag. economist 2 .2 2 Water management design engineer 6 Ag. systems engineer 2. 2. Training material s dev. spec ialist at GITI _ a a a a
Training materials dev. spec ialist at PASEa
158 XI. GLOSSARY
A. Acronyms
ARTI Agrarian Research and Training Institute (Agricultural Ministry) DDI Deputy Director, Irrigation Departnent, Sri Lanka GITI Galgamuwa Irrigation Training Institute (Irrigation Department) GSL Government of Sri Lanka IMD Irrigation Management Division (MLLD) ISM Project Irrigation Systems Management Project IIMI International Irrigation Management Institute INMAS Integrated Management of Major Irrigation Schemes (IMD) 10 Institutional organizer (catalyst agent for farmer organization in INMAS) MEF Monitoring, evaluation and feedback; elements of the ISM Project MIRP Major Irrigation Rehabilitation Project MLLD Ministry of Lands and Land Development, Sri Lanka O&M Operations and maintenance PASE Project for Advancing Settlement Expertise PSA Procurement services agent RCMO Regional Commodities Management Office SLIDA Sri Lanka Institute for Development Administration TDY Temporary Duty USAID United States Agency for International Development WMP Water Management Project WMS Water Management Synthesis Project
B. Terms
Ampara - Sinhalese spelling for district in Sri Lanka; the Tamil spelling is Amparai. Ampara and Amparaf are used interchdngeably in this report. Chena - Tract of land cleared for shifting cultivation.
Essential structural improvements - Only those i'-rovements needed to provide control or al iow monitoring to achieve the desired level of management. Ganga - a large river Kachcheri - district office of the Government Agent
159 Maha - Soason from early October through February Oya- a river
Pragmatic rehabilitation - limiting structural improvements to hcse needed to control water rather thcn restoring the system entirely to its original designed condi-tion. Purana - Old or traditional; referring to villages that exist in an area prior to irrigation scheme development
Samudra - a large body of water liko a reservoir or a sea.
Vel vidanes - paid# elected farmor representatives who report to the Agrarian Services Department Yala - Season from March through September
160 XII. Annexes
ANNEX A: PROGRAMME FOR INTEGRATED MANAGEMENT OF MAJOR IRRIGATION SCHEMES (INMAS)
Division of Irrigation Management of the Ministry of Lands and Land Development Irrigation Department Building Bauddhaloka Mawatha Col ombo 7
Information Booklet No: 2 CONTENTS
Page PREFACE ...... 4
INTEGRATED MANAGEMENT OF MAJOR SCHEMES...... 5
1 OBJECTIVES OF PROGRAMME,...... 8
2 ORGANIZATION AND FU'PCTIONS ...... 9
3 IMPLEMENTATION ...... 10
4 LINE AGENCY FUNCTIONS IN PROJECTS...... 14
5 RESPONSIBILITIES OF LINE AGENCY STAFF...... 16
6 STAFF ATTACHMENT TO PROjECT...... S 17
7 TRANSFER OF STAFF ...... 17
8 CONVENING OF MEETINGS ...... 17
9 REPORTING...... 18
10 FARMER OGANIZATIONS...... 19
11 FUNCTIONS OF FARMER ORGANIZATIONS...... 21
12 FUNCTIONS OF FARMER REPRESENTATIVES ...... 22
ANNEXURES ...... 23 PREFACE
This booklet is an attempt to translate the concepts behind the Integrated Management Programme for Major Irrigation Schemes (INMAS) into a framework for implementation. It gives some general informa tion and inlicators to be followed while providing some insight into the programme, its objectives and the functions of its operational hierarchy. These indicators are meant to provide some general guidelines in implementation to ensure a degree of conformity. This booklet is not meant to be a manual and should not be considered as such. Detailed information regards procedure to e adopted in implementation and duties to be handled by Project Management will be enumerated during implementation of the programme.
It is hoped that this booklet will provide answers to some questions in the minds of the various line agency personnel who would be involved in the programme and its implementation. It is requested that all associated with the programme extend their fullest co operation to us to implement this programme to which Government has accorded high priority.
Director, Irrigation Management Division Ministry of Lands & Land Development
10th September 1984
4 INTEGRATED MANAGEMENT OF MAJOR IRRIGATION SCHEMES
Major Irrigation Schemes constitute over 60% of the total irrigated area of the country and cover approximately 650,000 acs. of land.
The pot'ontial for greater productivity from these systems especially the larger systems that are settlement schemes is well established. The focus on settlements has been for three reasons:
f. An assured and regulated supply of Irrigation water with a well developed physical infrastructure. ii. "fell planned and uniform land holdings largely free from tenurial problems.
III, Pre-selected farmers with a good agricultural background.
A major constraint, to the productivity of these systems in spite of these positive features I- attributed to initial weakness of planning and subsequent lack of mandgement and resources.
The need for" increasing the Droductivity of these systems considering the high capital investments made in their establishment has been highlighted on several occasions. The F.A.3./I.B.R.D. Mission of 1966 (Paperzak Mission) :n its raport highlighted the need for greater output from these systems and as a result the Special Projects Programme of the then Ministry of Agriculture and Lands was imple mented in 23 selected settlements starting with Elehera in 1967.
The main feature of the programme was the attempt to increase agricul tural production by the coordination of the various services available to farmers and use of better seed and other inputs. The programme helped to increase yields in these schemes to a marked degree, managed to introduce other subsidiary crops into the mono-cropping system that prevailed, brought about a better coordination among the sarvices and attempted to handle all agricultural activities on a project basis for the first time. However, the inability of the programme to sustain has been attributed to the lack o1 adequate insti ;utional development and the non-involvement of farmers in management decisions affecting them. The farmers were essentially another input in the process of production.
It is clear that current production levels have been achieved largely by explciting the greater potential of high yielding varieties togeth6-; with application of the necessary inputs. Adequacy and predictability in the supply of water was not considered an important concern in this strategy. The potential production increase that could be realized from better management of the resource base still remains largely untapped. Equity in supply of irrigation water is in the forefront of the con sciousness of farmers and any attempt at increasing the productivity from these systems has to cater to this.
With the identification of irrigation water as the most critical and limiting resource in the production chain and need to have viable farmer institutions developed to represent farmer interests and provide for their participation in management* an attempt was made In mid 1982 to introduce the project management system to a few selected schemes with the emphasis on the above.
25 major schemes were selected under the Water Management Programme which sought to emphasize the following aspects: I. Proper timing of cultivation and adherence to management decisions made at cultivation meetings.
ii. Each Project to have a Resident Project Manager who would coordinate the services of officers of line departments. III. Farmers would be encouraged to build up institutions which would initially participate in water distribution and management and eventually in all spheres of agricultural activity. Evaluated over a period of 03 seasons the programme was found to have infused a greater sense of discipline in water use among farmers and contributed to a greater degree of coordination tmong services to farmers. A gradual emergence of organized representation of farmers and their participation in Project activities was also realized. However, the following deficiencies, which would hamper its long term continuance surfaced. These were:
i. Line department priorities superceding project needs.
ii. Over staffing and under utilization of staff due to failure to clearly delineate the functions of some of the field staff. iii. Administrative arrangements which prevent the Project Manager from having management control over departmental staff.
iv. Resultant failure to have a coordinated programme for farm power, input supplies and marketing which alone could optimize water use in the long run- The programme for Integrated Management of Major Irrigation Schemes (INMAS) is an attempt to rectify some of these weaknesses especially at Project level. It seeks to overcome most of the constraints out
6 lined above. An attempt is being made to rationalize staff deployment and duties within the flexibility available from existing organiza tional structures of the line agencies involved. Though Government approved a degree of administrative control to the Project Manager over line departmental staff, what is envisaged, however, is more effective coordination and agreeme.t has been reached with the line departments to have their field staff attached to the ProjecL who as members of the Project Committee, would be responsible to the Project Manager for work performed in relation to the agreed programme.
Institutional building and setting up of farmer organizations is give high priority under this programme. This would enable them to par ticipate meaningfully in management decisions and activities that affect them and acquire a degree of management capability that will enable the state to withdraw from certain operational activities at a later stage.
The decision by Government to recover 0 & M costs adds a new dimension to the existing situation and makes it imperative that farmers have a say in how funds collected from them are disbursed on maintenance of the irrigation network. In such a context the establishment of farmer organization early, cannot be over emphasized, as -3uch a mechanism would be the only practical instrument for farm->I :ficer dialogue.
Governments concern with obtaining greater productivity from these systems in general and need for change from a overly subsidized to a self-sustaining and self-financing irrigation Operation & Maintenance programme in particular has been indicated.
The key to success of this programme is the proper development of farmer institutions and the participation of farmers in management activities while strengthening the management system at Project level. The District Agricultural Committee would necessarily have to provide the required guidance and leadership to the Project Managers in this regard.
NANDA ABYEWICKREMA, Secretary, Ministry of Lands & Land Development.
7 PROGRAMME FOR INTEGRATED MANAGEMENT OF MAJOR IRRIGATION SCHEMES (INMAS)
1. OBJECTIVES OF PROGRAMME
The programme for Integrated Management of Major Irrigation Schemes (INMAS) seeks to establish a harmonization of the various inputs and services necessary for increasing agricultural productivity with special focus on the use of irrigation water which has been identified as the most critical and limiting resource in irrigated agriculture. It would identify the components for which various line agencies would be responsible and seeks to coordinate these activities through a system of Project Management. The lack of viable farmer institutions has also been a major constraint in involving farmer participation in management der-sions affecting them. The programme seeks to rectify this by giving priority to the setting up of farmer institutions which should provide an effective mechanism for farmer-officer dialogue.
Initial emphasis under the programme would be on the following aspects:
Project Management with a view to:
- Increasing agricultural production per unit of irrigation water. - Increasing agricultural production per unit of land. - Adequate and equitable distribution of irrigation water to farmers. - Arrange for timely supply of agricultural inputs and sale of produce. - Organize and develop farmer institutions to facilitate their participation in management. - Recovery of 0 & M costs from beneficiaries in major irrigation schemes. - Maintenance of irrigation systems at optimum levels of performance. - Identify major systems needing urgent rehabilitation. - Farmer education.
In the long term it would focus on:
- Integrated development of the farm lot to a commercial holding. - Crop diversification and rotation. - Social and economic development of the farming community. - Marketing of agricultural produce and by-products. - Agro-based industries. - Processing of agricultural produce to semi-finished or finished products locally. - Handing over to farmer organizations some of the management and operational functions of these projects.
The INMAS Programme will be implemented in major schemes or systems which have over 2,000 ac.. of irrigated land. (Annex I) gives the list of schemes that will be taken up under the programme.
8
\I 2. ORGANIZATION AND FUNCTIONS
I. Division of Irrigation Management:
The Division of Irrigation Management consisting of an interdiscipli nary group with experience in Irrigationt Agriculture, Institutional Development and Management will pay attention mainly to the irrigation systems in the Dry Zone. The organigram (Annex I) indicatris its operational hierarchy. The Irrigation Management Division of the Ministry of Lands & Land Development is located in the Grrund Floor of the Irrigation Department Building, Bauddhaloka Mawatha Colombo 7. It will function as the administering authority for the programme and will receive policy guidelines and direction 'rom the Central Coordinating Committee on Irrigation Management.
Some of its main functions are:
- Administering and implementing the "INMASI programme. - Recovery of Irrigation Rates (0 & M costs) from beneficiaries. - Administering the 0 & M collection fund and allocating these funds for maintenance work in irrigation systems. - Allocation of funds for 0 & M in Major Irrigation Schemes. Identification of systems for improvements and ,ehabilitation and allocation of funds after discussion witn relevant agencies. - Implementation of programmes for rehabilitation of major schemes. - Establish farmer institutions whose main focus is irrigation, in Major Irrigation Schemes. - Monitor the use of irrigation water in Major Schemes with a view to optimizing its uss. - Monitoring of agricultural production activities in Major Irrigation Schemes with a view to increasing agricultural productivity. - Prepare long term plans for diversification and optimum utilization of irrigated land. - Total integrated development of agricultural land in Major Irrigation Schemes with a view to increasing incomes of farmers. - Socio-economic Development of the farming community in Major Irrigation Sch nes. - Use of me' a for Irrigation extension and publicity. ii. Project Manageaint:
At the Project level the Division will operate through its Project Managers who will res'je and function rom the schemes to which they are attached. While they would come under the administrative control of the Division for matters connected with administration and the agricultural programme, they would be answerable to the D.A.C. Sub-committee on Agricultural Development that would implement and monitor the programme at the District level.
9 iii. The Project Manager:
The Project Manager would be the most important link with the project and would be the 'king-pint on whom the success of the programme would depend to a great extent. The Project Manager appointed under the 'INMAS' programme will be basically a co-ordinator who is expected to harmonize the various inputs from the respective line agencia. He will provide for interaction and dialogue between farmers and officers in matters connected with agricultural and social development and encourage farmer participation in project activities with a view to achieving programme objectives.
His functions will broadly cover but not e limited to the following:
- Implementation of a cultivation programme agreed and drawn up with the assistance of farmers and officers. - Arrange for the holding of timely Kanna meetings. - Act as Secretary and convenor of Kanna meetings. - Organize farmer institutions in the Project. - Co-ordinate the supply of aqricultural inputs, services and irrigation water. - Represent the Project at the D.A.C. Sub-Committee. - Convene and Chair Project Committee meetings. - Motivate farmers to pay O&M rates and co-ordinate col l ections. - Arrange for marketing of produce. -, Arrange for the maintenance programme and water issues with the irrigation authorities as decided at the Project Committee. - Protection of the Irrigation System and arrangement for prosecution of offenders under Irrigation Ordinance. - Pursue action with relevant authorities in case of animal trespass and damage. - Financial and administrative control of funds and staff attached to the Project Managerts office. - Reporting at the required periods to the D.A.C. Sub-Committee and Division of Irrigation Management. - Compute water use per acre and crop yield per acre with assistance from the relevant authorities.
3. IMPLEMENTATION
I. National Level:
Implementatinn of the programme involves the co-ordinated contribu tions of varius agencies involved in agricultural production. Several agencies some outside the purview of the Ministry of Lands & Land Development have atvital role to play in implementation. The co-ordination of these services and activities is achieved through the
10 mechanism of the Central Co-ordinating Committee for Irrigation Management which is responsible for direction, co-ordination and implementation of the programme with a view to dchieving its objectives. It would review policy and provide continuing guidelines for implementation at National and Local levels while setting priorities and allocating resources. It would monitor progress regularly taking corrective action in instances deemed necessary. The Central Co-ordinating Committee for this progiamme constitutes:
- The Secretary, Ministry of Lands & Land Development (Chairman) - The Secretary, Ministry of Agricultural Development & Research - The Chairman, Agricultural Development Authority - The Director of Irri.ation - The Director of Agriculture - The Land Commissioner - The Commissioner of Agrarian Serices - Representatives of State Banks
The Director, Irrigation Management would function as Secretary to the Committee wit the Representatives of any other agency deemed neces sary for impl iientation of the programme being co-opted to the Committee as required. The Central Co-ordinating Committee would meet as required, but not less than once every quarter. ii. District Level:
At the District level, the instrument of implementation and mo,;1toring is the Sub-Committee of the District Agricultural Committee set up to direct this programme.
This Sub-Committee would:
- Function as the main implementing body for management of the projects coming under the Integrated Management Programme in the District. - Identify the projects in the District as a separate production unit of the Annual Implementation programme of the Ministry of Agricultural Development and Research and draw up annual programmes and nonitor performance of each project o, this basis. - PrL.,amme for holding timely cultivation meetings for Maha and Yala for major schemes in the District especially in the Projects under the programme and draw up a calendar of such meetings. - Programme, monitor and review the operation and maintenance programmes in respect of the Irrigation network as prepared by the Project Committees/Range Deputy Director.
11 - Programme, monitor and review the programme of Institutional Development and building up of farmer organizations in these projects. - Programme, monitor and review the collection of irrigatfon rates. - Monitor and review arrangements for prosecution of offenders under the Irrigation Ordinance and Agrarian Services Act. - Monitor and review administration and organizational aspects of these projects in relation to staffing, services, etc. - Send calendar of meetings, minutes and reports to the Central Co-ordinating Committee on Irrigation Management through the Irrigation Management Division. This Sub-Committee of the D.A.C. would be represented by:
- Government Agent of the District (Chairman) - Range Deputy Director of r'rrigation (Secretary) - Additional Government Agent, Lands - Deputy Provincial Direc,.or of Agricultural Development Authority - Asst. Director of Agriculture of the District - Asst. Commissioner of Agrarian Services of the District - Asst. Commissioner of Co-operative Development of the District - District/Regional Manager, Paddy Marketing Board - District Manager, Agricultural Insurance Board - District Managers of State Banks - Project Managers of Projects falling within the District.
The District Heads of other Agencies may be co-opted into the Sub-Committee as and when required.
Interaction with the Executive Committee of the Development Council if siecessary could be established through suitable representation 1n this Sub-Committee.
This Committee would meet as often as required, but not less than once every quarter.
In view of the need to time the meetings so as to enable the seasonal programmes to be approved, it is suggested that:
- A meeting be held at least one and a half months before start of every season to draw up the calendar of Kanna meetings, approve the seasonal programmes in the 'INMAS' projects and evaluate the previous seasons performance.
12 - A meeting be held within two months of the start of the season for mid-term evaluation of the seasons programme. iii. Project Level: Project Cammittei:
A Project Committee comprising of field staff of all agencies involved in agricultural production and fanmer representatives would determine the programmes for implementation in the Project. The main functions of the Project Committee are: - Formulation and implementation of a cultivation programme for the season/year. - Holding of timely Kanna meetings. - Ensure proper distribution of irrigation water. - Arrange for timely provision of credita seed and other inputs. - Monitor programmes and take corrective action where needod. - Recovery of O&M costs. - Arrangemonts for Operation & Maintenance of all capital assets and approval of items to be handled dnder the maintenance programme of the Irrigation System. - Promote formation and participation of Farmer Organizations in project activities. - dentify training needs of farmers and officers serving in Project and arrange training. - Report at the required regularity to the D.A.C. Sub-Committee and to the Irrigation Management Division. The Project Committee would consist of:
- Project Manager (Chairman) - Representative of Irrigation Department - Representative of Agriculture Department - Representative of Agrarian Services Department - Representative of Agricultural Development Authority - Representative of Land Commissioners Department - Representatives of Statn Banks - Representatives of Farmer Organizations
The following agencies are broadly identified with the programme and the level of representation would be as follows:
13 - Agriculture Department: The Agricultural Instructors working in the project area. Agricultural Officers if attached to these schemes would also participate. - Agrarian Services Department: Divisional Officers attached to the A.S.C. serving the Project area. - Irrigation Department: Technical Assistants attached to the Project. Irrigation Engineers if attached to these schemes would also participate. - Land Commissioners Department: Colonization Officers attached to the Project. District Land Officers if attached to these schemes would also participate. - Agricultural Development Authority: The Agricultural Manager of the area, - Other Agencies: Divisional level staff of other agencies servicing agricultural needs of these schemes may be co-opted into the Committee or be invited to specific meetings if so required. - Farmer Representatives: Depending on size of Project, Farmer Representatives from the turn-out groups, Distributary Canal or Sub-Project Committee would re present farmer interests in the Project Committee. In all cases the number of farmer representatives on the Project Committee should be about 15 or 20. As the management capacity of the farmer representatives develop, the Project Manager would take action to have a farmer representative elected as Chairman and he functions as the Secretary to the Committee.
4. LINE AGENCY FUNCTIONS IN PROJECTS
The following main functions are identified as those performed b;. the under mentioned agencies in the Projects: i. Agriculture Department: - Agriculture extension services. - Farmer training in agriculture and on-farm water management. - OLmonstration plots and trials.
ii. Irrigation Department: - Maintenance of Head Works and the Irrigation System. - Civil works of Rehabilitation of Irrigation Systems. - Operation of Irrigation Systems including planning, implementation, & monitoring of water distribution. iii. Department of Agrarian Services: - Arrange for supply of Agricultural inputs through A.S.C., cooperatives and private sector. - Farmer training and on-farm water management with assistance of Agriculture Department.
14 \ - Crop insurance arrangements with Agricultural Insurance Board. - Arraige for agricultural credit. - Implementation of the Agrarian Services law. - Take action in cases of animal trespass and damag. - Assist in establishment of farmer institutions for distribution of water.
iv. Land Commissioners Departent:
- Work connected with laud disputes in settlements. - Settler wellare. - Assist Project Management in organizing farmer institutions and participation. - Collection of itatistics on extents cultivated in settlements. - Liase with Irrigation Department and assist where irrigation problems arise. - Assist in prevention of Irrigation Offences and in pro.,ecution of offenders.
v. Agricultural Development Authority: - Monitor levels of supply of all agricultural inputs and help in arrangements of supplies where shortages occur. - Assist in the sale of produce. - Gather statistics as rcgards the quantities of inputs utilized and produce sold. vi. Paddy Marketing Board: - Arrange for timely purchase of produce under floor price scheme. vii. Agricultu.tl Insurance Boare, - Provide agricultural in5;u',rance and make indemnity payments to facll b,:ate recultivation. viii. Bank of Ceylon: - Provide agricultural credit and cultivation loans to those eligible through the Agrarian Services Centres. ix. Peoples Bank: - Agricultural credit through its Branches and cooperatives. x. Other State Agencies: - The Woman's Bureau, Department of Co-operativest Department of Rural Development, Department of Animal Production and Health, Department for the
15 Development of Marketing, Departnent of Fisheries and Department of Small Industries would be some of the other agencies with which Project Management and the Programmes would necessitate dealings with. Their participation would be requested if and when necessa ry.
xi. Co-operatives and Agrarian Services Committees: - Multi-purpose Co-operatives, Agricultural Producers Co-operatives and Agrarian Services Committees serving the Project area are organizations that play a vital role in agricultural activities of the Project. In the drawing up of programmes and con nected activities it would be necessary to consult with them. If deemed necqssaryp representatives may be invited to participate in Project Committee meetings.
xii. Local Authorities and Non-Governmental Organizations: - It may be necessary to interact with the local authority or Gramodaya Mandalaya of the area and it may be beneficial to have them involved on certain issues. If necessary arrangements may be made to have a representative of the Gramodaya Mandalaya associated with the Project Committee. - In the organization of activities involving farmers it may be beneficial to involve any N.G.O.'s that are active and could help in mobilizing public support for certain programmes# eg. shramadana in the Project area.
5. RESPONSIBILITIES OF LIhE AGENCY STAFF WORKING IN THE PROJECT VIS A VIS THE 'INMAS' PROGRAMME
Officers of the various agencies working in the Project area would perform their normal duties assigned by their respective agencies. Those involved in activities that have a bearing on the programmes or activities coming within the purview of the Project Committee will programme for or implement such activities in consult ation with the Projec-' Committee or Project Manager. This is to ensure co-ordination and implement a common agreed programme.
All officers serving on the Project Committee will attend the Flruject Committee meetings regularly. They would also copy their advance programmes to the Project Manager to enable him to plan for Joint inspections or field visits when necessary.
Any agency ruling that would affect the agreed programme would be brought to the immediate notice of the Project Manager by the Project Officer concerned.
16 Activities outside the general duties assigned by the respec tive agencies to Project staff but are activities coming under the purview of the Project Committee and not assigned to any agency of officer, would be distributed on an agreed basis among Project Staff serving on the Project Committee. In the case of such activities the concurrence of the local, regional or district Head of the respective agency would be sought and the Head of the agency kept informed. The payment of a project allowance to such staff performing duties out side their normal work is contemplated.
6. STAFF ATTACHMENT TO PROJECTS In order to provide for better co-ordination and effectiveness, all Project Staff would normally have responsibilities wholly within the Project area. They would be resident within the Project area and be available for project work in addition to their normal duties.
7. TRANSFER OF STAFF ATTACHED TO PROJECTS
There would be consultation with the Irrigation Management Division of the Ministry of Lands & Land Development when project staff who are members of the Project Committee are movad in and out of the project area. The Project Manager would be kept informed when village level staff of these agencies are moved in and out by their respective local District Heads. 8. CONVENING OF MEETINGS I. D.A.C. Sub-Committee: - The Secretary to the D.A.C. Sub-Committee would convene meetings of the Sub-Committee at the agreed or requisite time. - The agenda would reflect all items and issues that are tropical and currently need attention or discussion. - A progress report for the reporting period will be tabled at every meeting and evaluated against the set programme. - The programme drawn by the D.A.C. Sub-Committee would cover all activities that come under its purview and the progress repc 'swill cover all such activities. ii. Project Committee: The Project Manager would convene the Project Committee meetlng which would be held at least once every month.
17 - The agenda would reflect all issues that are topical and currently need attention or dis cussion. A progress report for the reporting period will be tabled at every meeting and evaluated against the agreed programme. All Project Officers who are members of the Project Committee will table progress reports for components of the programme for which they are responsible. - The programme drawn up by the Project Committee would covar all activities that come under its purview and the progress reports will cover all such activities.
9. REPORTING
i. D.A.C. Sub-Committee: Minutes of the D.A.C. Sub-Committee meetings will be circulated among tie respective local Heads by the Secretary who will also copy these minutes to the Irrigation Management division of the Ministry of Lands and Land Development. If the minutes incorporate an item affecting the policy of any agency or requires its intervention, he will copy such minutes to the Head of the agency concerned, with intimation to the Irrigation Management Division to enable follow up action to be taken at Head Office level.
A progress report for the reporting period covering all aspects coming under the purview of the D.A.C. Sub-Committee will be sent to the Irrigation Management Division along with the minutes. The calendar of Kanna meetings for all major irrigation schemes in the District will also be sent to the Irrigation Management Division as soon as the dates are fixed.
ii. Project Committee: Minutes of the Project Committee meetings and the progress reports for the reporting period will be sent regularly to the Secretary of the D.A.C. Sub- Committee and to the Irrigation Management Division of the Ministry.
The programme for the season will bV. drawn up by the Project Committee, approved by the D.A.C. Sub-Committee and a copy sent to the Irrigation Management Division of the Ministry.
18 t \, 10. FARMER ORGANIZATIONS
Farmer participation in Project activities constitutes an essential part of the 'INMAS' Programme. Farmer organizations provide the forum for dialogue and interaction among farmers a" between farmers and officers working in the Project. Though various types of farmer organizations exist in one state or another in these schemes, this programme seeks to set up these organizations within an identified framework to sat,3fy the irrigation and allied needs of farmers lving in these Projects.
Though size, type and level of representation of tiese organizations will depend on the Project itself and would need to cater to its specific needs, some conformity and consistency in th6 organizational and structural arrangements is essential to f&cilitate management.
In the establishment of farmer organizations under the 'INMAS' Programme, the following guidelines are emphasized:
- Farmer Organizations at all levels should represent a distinct hydrological area.
- Members of these organizations should be bona-fide cultivators within the area it represents.
- The organization should represent all cultivators within the area.
- Officers would participate at the meetings of these organizations as observers or in an advisory capacity. In the case of the Distributary Canal or Sub Project Committees an officer could function as its Secretary.
To make farmer representation and participation practicable, it is recommended that the 03 tier system of organization be adopted. This, however, wouh' be modified depending on the circumstances and size of the Project.
(a) Primary Level of Organization:
i. Turnout Groups: This constitutes the lowest level of organization but the most important under the programme. It forms the base on which the higher level organi zations are built up and their viability and sustained activity determines the success or otherwise of the programme.
It is recommended that this organization represent all farmers being served by a turnout or F.C. as
19 the case may be. It should not represent more than 15-25 farmers under normal circumstances. They would appoint a representative among them selves to be their spokesinan in irrigation and agricultural matters in the next level of organization. In the selection of the representatives it is desireable that he be appointed by concensus rather than by the electoral process.
Arrangements are being made with the Dept. of Agrarian Services to have the unit area the organization represents considered as ths area for which 41Vel-Vidane or Yaya-Palaka wculd be appointed under the Agrarian Services law. In view of this, the formal ratification of the farmer representative or his election would need to be done in accordance with and as pro vided for under the Agrarian Services law.
(b) Secondary Level of Organization: i. 'DI Channel Committee or Sub-Project Committee: Depending on size of Project and circumstances, it would be necessary to form these organizations for the next level of representation. They may be formed on the basis of one or more Distributary Canal areas. As it is desireable to limit the number of farmer representatives in the Project Committee to about 15 or 20 for practical reasons, the number of Distributary Canal or Sub-Project Committees would be determined by the number of tt'rnout groups. In some instances, especially in the smaller projects, it would be possible to have one of the turnout group repre,;entatives to be selected to represent two or three contiguous turn out areas and he be appointed directly to the Project Committee. This would obviate the necessity of having an intermediate level farmer organization. In the event it is necessary to have such an organi zation and conditions permit representation in the Sub-Project Committee need not be limited to the representative from the turnout group but one or two other persons from the turnout group could also represent interests at this level. (c) Tertiary Level Organization:
20 1. Project Committee: On this Committee representatives from the Primary or Secondary level organizations, as the case may be, will be appointed and represent the Head, Middle and Tail sections of the canal system. It is desireable that a greater number of representatives be from the tail sections. The number of farmer representatives on the Project Committee would be about 15 or 20 to enable participation to be practical.
11. FUNCTIONS OF FARMER ORGANIZATIONS
Some of the main functions and responsibilities of these farmer organizations, especially the turnout groups would be to:
- Identify the critical areas of the Irrigation System needing attention and indicate priority areas for rehabilitation on repair. - Maintain and clean field channels with the assistance of farmers. - Organize shramadana to attend to items of work on the channel network that can be handled by the farmers under supervision of the Irrigation authorities. - Water distribution and rotational water issue!. within the field canal. - Participate in decision making in matters connected with agriculture and irrigation through its representatives. - Motivate farmers and encourage them to do on-farm water management. - Inform authorities of offences relating to the irrigation systems and assist in checking of such offences. - Submit proposals in respect of irrigation or the agricultural programmes through their representa tives to the Project Committee for consideration. - Liase with the Project Committee and connected agencies in obtaining of inputs and sale of produces. - Motivate farmers to pay irrigation rates (O&M costs). - Inform the necessary authorities and assist them in cases of pest or disease outbreak or damage to crops by animals. - Handle maintenance work in systems on contract under supervision of Irrigation authorities.
21 12. FUNCTIONS OF FARMER REPRESENTATIVES
- The Farmer Representative or Govi Niyogitha would be the main spokesman for the group he represents at all levels of the organizational hierarchy. - In addition to the turnout group, if he is a repre sentative of the Distributary or Sub-Projact Committee, he would be spokesman for the entire area he represents and not only the turnout group. - At the turnout or field canal level he will, with the agreement and assistance of the group he represents# be responsible for water distribution. - In addition to distribution of water, he would take up with Project Management all issues as regards agriculture that come up in this area and assist the Project Committee in matters coning under its purview. - Would especially assist the authorities in collection of O&M costs, in instances of animal damage and trespass and irrigation offences. - Would ensure that cultivation decisions made at the Kanna meetings are carried out and motivate farmers to keep to the calendar of operations. - Arrange for clearing of field canals by farmers either on 'pangu' basis or shramadana. - Identify with the farmers the structures and other items in the canal network that need attention on a priority basis and submit the list to the Project Committee. - Would help the authorities in the gathering of agricultural statistics. - If appointed under the Agrarian Services Act as Vel-Vidane or Yaya-Palake, he would perform such duties required of him under the Act and be entitled to Salaris. - If a Vel-Vidane already operates in the area in a scheme and his services are acceptable to the farmers, he could represent the turnout groups or a distributary canal organization, as the case may be. His co operation would be solicited and he should be brought into the programme to prevent separate groups or camps being formed. If his services are unsatis factory, action could be taken to remove him and the recommended procedure to appoint farmer repre sentatives on the basis outlined earlier followed.
22 C, ANNEX I: PROGRAMME FOR INTEGRATED MANAGEMENT OF MAJOR IRRIGATION SCHEMES
RneDistrict Scheme
Polonnaruwa Polonnaruwa Parakrama Samudraya Scheme Minnerlya Kaudul la Giritale
Trincomal ee Trincomalee Kantal e/Vendrasan Al lal Morawewa, Mahadivul wewa
Kandy Kandy/Matale Minipe st. 1,2,3 9 4
Kilinochchi Kilinochchi Iranamadu Akkarayankul am Mullativu Muthyaiyankaddu Vavun ikul am Thannimuruppukul am Anuradhapura A'pura/Ttmalee Padaviya Anuradhapura Nachchaduwa Mahakandarawa Wahal kada Mahawilachchiya Nuwarawewa
Kekirawa Anuradhapura Huruluwewa Al pura/Ku'gal a Rajangana Matale Dewahuwa
Amparal Amparai Galoya L.B. Sagamam, Rufuskulam & Kandakudi Aru Namaloya Ekgal-oya, Pal lanoya, Amba'ian-oya, Pannalagama
Kurunegala Kurunegala Ridi Bendi Ela Hakwatuna oya Mloya Sys. (Attaragalla, Abakolawewa and Palukadawela st. 1 & 2) Bandarawela Bandarawela Nagadeepa, Soraborawewa, Dambarawa, Mapakada
23 Puttalam Puttalam Inglnlmitiya
Tabbowa
Moneragala Moneragala Mutukandlya Vavuniya Vavuniya Pavatkulam
Hamb-,tota Hambantota Kirindi Oya (inc. Ellegala, Badagi rlya) RI dlyagama Urobokkuoya Mannar Manriar Giants Tank
Batticaloa Battlcaloa Untchchal Rugam Vakanerl
24 Annex II: Organization Chart of the Division of Irrigation Management
mINISTRY OF LAMND AAV LAM, DEVELOPMENT (S/L.& L.D.).
DIVISION OF IRRIGATION MA NAENAhT
(DIREC-roR)
A V *I S 0 R S ADVISOR (ADITIONAL DIRECTORS) (ADL: DIRECTOR) AGRZC: AGRONOmY £ CONOI C £ INEER I NC II
EDUCATION AND PLANNING AND FlINAM OPERATION AAD MAJOR PUBLICITY PROGRESS MAINTEH4MX RABILITATION (DEP: DIR:) CONTDRO (DEP: DIR:) (DEP: DIR:) (DONP: DIR:) (DEP: DIR:)
UNIT Annex III: Organlzaticn Chart 'INMAS' Programme
CENTRAL COORDINATING I COM61TTEE ON I SDIRECT I IRRIGATION MANAGEMENT FUNCTIONAL - - - ______S. L. a L. D.
LINE AGENCIES ASSOCIATED I3 WITH 0 ',N MA S' - - IRRIGATION MANAGEMENT, I O A DIVISION. M.L.a L.D. [ - IRRIGATION DEPARTMENT
GOVERNMENT AGENT IRAN~GE DEPUTY DIRECTOR I.D. REGIONAL /DISTRICT ------___------OFFICES OF - D.A.C. SUB-COMMITTEE ON SECRETARY LINE AGENCIES I AGRICULTURAL DEVELOPMENT I m D.A.C. SUB-COMMITTEE ASSOCIATED L L -
'INMAS'
IRRIGATION ENGINEER PROJECT MANAGER IN CHARGE OF DIVISION
PROJ ECT COMMIT T E E
.A.D.A. - TATE BANKS " COMMISIONERSLAND - AGRARIAN[]SERVICES AGRICULTURE FARMER iRRIGATION DEPARTMENT DEPARTMENT. DEPARTMENT REPS' DEPARTMENT
SUB PR (nJE f T COMM'T rlEES ANNEX B: IMPROVING IRRIGATION MANAGEMENT THROUGH FARMER ORGANIZATION: RESPONSES TO A PROGRAM IN SRI LANKA
Shyamala Abeyratne Agrarian Research and Training Institute
Jeffrey D. Brewer Cornell University
Piyasena Ganewatte Cornell University
Norman Uphoff Cornell University
Paper prepared for SSRC South Asia Committee Conference on Community Responses to Bangalore, January 4-7, 1984
\l Improving Irrigation Management Through Farmer Organization: Responses to a Program in Sri Lanka
More than most countries, Sri Lanka depends on the irrigated production of paddy to feed its population. About two-thirds of the area devoted to paddy is irrigated, and irrigated areas produce 80% of the total rice crop. In developing tea, rubber and other plantations in Sri Lanka, the British colonial government created a food-deficit economy dependent upon imported rice. To overcome this colonial legacy and the resulting balance of payments problems, it has been important to increase irrigated paddy production. Also, the inten sification of agriculture is important for creating employment oppor tunities for Sri Lanka's growing population.
Investment in irrigation, particularly large-scale irrigation, is of high priority in Sri Lanka. The Mahaweli scheme now being developed will irrigate 650,000 acres and serve some 250,000 families. Other schemes are being rehabilitated in order to expand the area served. In general, the productivity of water, a resource scarcer than land or labor, has been less than possible and desirable (Chambers, 1975). Thus, water management is recognized as an impor tant component of irrigation development for new and for old schemes. The importance of involving farmers in water management to improve water use efficiency and to get more equitable distribution has only in recent years been accepted by the Sri Lankan government. There are currently several experiments in Sri Lanka aimed at promoting farmer participation in water management in large-scale irrigation schemes.
This paper describes one such experiment in promoting farmer participation in irrigation management, reports its initial successes, and offers a preliminary analysis of the reasons for the changes in farmer responsibility for better water utilization. The experiment is locat6d in the Left Bank area of the Gal Oya Irrigation Scheme In southeastern Sri Lanka.
I. The Gal Ova Water Management Project
Large-scale irrigation began in Sri Lanka some 2,500 years ago. A distinguished ancient civilization was built upon the engineering and agricultural skills of Sri Lankans (B,'ohier, 1934-5). In the 11th Century, King Parakramabahu, renowned for the development of irrigation works, decreed that "not one drop of water should run into the sea without being used."
3 For reasons still not completely understood (Indrapala, 1971), the center of population shifted from Sri Lanka's Dry Zone to the Wet Zone in the southwest of the island after the 4th century. With this shift, the great irrigation works fell into disuse. After British rule was established in the 19th century, small-scale irrigation declined also, at least in part due to the undermining of the village council (Gamsabhawe) system. While some efforts to revive the irriga tion systems began in British time (Roberts, 1967), it was not until after 1931, when a measure of self-government was established, that serious efforts to reestablish irrigation systems in the Dry Zone began (K.M. de Silva, 1981).
At the time of Independence in 1948, the government embarked upon construction in the southeastern portion of the country of the Gal Oya Irrigation Scheme, th.n the largest scheme In Sri Lanka (only the completed Mahaweli scheme will be larger) (see Map). The main reservoir, the Senanayake Samudra (named after the first Prime Minister, the prime mover in the construction of the system), can hold 770,000 acre-feet of water. The system irrigated more than 120,000 acres and serves more than 30,000 farm families. The command area is divided into three parts: the Left Bank, the Right Bank, and the River Division.
Except for the River Division lands and the coastal regions, the Gal Oya area was largely unpopulated prior to development of the scheme. Sinhala settlers were brought from many places in the Wet Zone and settled in the head and middle areas while Tamil-speaking farmers from nearby East Coast villages were given land close to their villages in the tail of the system.
The Gal Oya system is not only large, it is also very dif ficult to manage. There is no uniformity in channel length and many channels are serpentine. In much of the area, soils are poorly suited to irrigated paddy cultivation and, because soils vary, water require ments vary.1 Too, there are often water shortage problems because the catchment area yields less water thdn expected; the reservoir rarely fills more than halfway and has spilled only twice since it was com pleted in 1952. The command area today is far larger than planned for. The original design for the Gal Oya System provided for 42,000 irrigated acres in the Left Bank area. Current estimates place the Left Bank irrigated area at more than 60,000 acres. This increase has been due to farmers bringing 40 to 50 percent more land under irrigation. Such an action might otherwise be hailed, were there enough water to serve the entire area. In addition, from lack of maintenance and other problems, structures and channels have greatly deteriorated in the thirty years since settlement began. As a conse quence of these changes and the shortage of water, the lowest third of the Left Bank area is essentially rainfed.
4 In 1978, when USAID and the Government of Sri Lanka analyzed areas in which AID's assistance might be must useful, it was deter mined that water management deserved high priority. AID agreed to provide funding and technical assistance to the Irrigation Department for physical rehabilitation of one or more irrigation systems, to be accompanied by strengthened institutional arrangements to improve water management in the rehabilitated systems. The Irrigation Department proposed the Gal Oya system for rehabilitation, perhaps because it was the largest and most in need of rehabilitation. The Gal Oya Left Bank, the oldest, largest, and most deteriorated part of the system was chosen as the place to begin.
The initial project documentation saw "wasting" of by farmers water in the head areas as the primary water management problem.2 The suggested solution was enforcement by the Irrigation Department of rules and laws designed to control farmer behavior. In fact, the way head area farmers used water is in large part a response to the unpre dictable conditions under which the system operated (Wijayaratne, et al. 1982). Deficiencies in main system management could also be determined (Murray-Rust, 1983).
Experience in other countries suggested that farmer participa tion would help in water management and rehabilitation. Therefore, provision for introducing farmer organization was added to the project. Responsibility for developing a "model" for farmer organiza tion and for "testing" the model was delegated to tho Agr&rian Research and Training Institute (ARTI) in Colombo. Because ARTI had limited experience in water management, the Rural Development Committee at Cornell University was asked to work with ARTI in a role of developing institutional capacity. In addition, ARTI undertook to monitor the effects of the rehabilitation activities on system performance, agricultural production, and farmer welfare. ARTI-Cornell cooperative work began in September, 1979.
The ARTI Farm Organization Program
In January 1980, during the first visit to the field to plan for farmer organization, it became apparent that relations between the farmers and Irrigation Department officers were strained. Having the latter organize farmers according to some prescribed "model," even if given the force of law, was not likely to succeed (Uphoff, 1982).
The National Irrigation Administration in the Philippines had been very successful in organizing farmers to participate in irriga tion iystem rehabilitation and waIer management in small systems with the help of Community Organizers. Group Organizers had been used in the FAO-supported Small Farmers Development Programme in Nepal and othe! Asian countries. ARTI and Cornell researchers felt that the effort to get farmer participation in system rehabilitation and in subsequent operation and maintenince was most likely to succeed if
5 "catalysts" similar to the Community Organizers and Group Organizers were recruited to work in Gal Oya.
Further, because of the complexity of the Gal Oya system and the variations within it, it was decidel to adopt a "learning process" approach (Korte, 1980) rather than develop a single "model" to be replicated throughout the scheme. This approach called for an inter vention strategy that would be modified in response to the situation as it developed.
The strategy adopted was to field catalyst agents called Institutional Organizers (IOs) wiho live with the farmers. The Institutional Organizers were expected to meet farmers individually explaining to farmers possible roles and improvements and to obtain first-hand information on irrigation and water management problems. The Institutional Organizers then were to meet farmers in small groups and encourage them to undertake self-help activities such as cleaning and desilting field channels and repairing village roads. It was expected that greater understanding and cordiality would develop among farmers. After the initial group action phase, Institutional Organizers helped arrange a meeting of farmers in a small hydrologi cally defined area, usually a field channel with about 15-20 farmers. At this meeting, the value of organizing themselves to manage their water and to settle problems and conflicts was discussed. Usually after one or two meetings informal farmer organizations were set up. By consensus, farmers would select one of the farmers to serve as the Farmer Representative. (If it was a larger area, they might choose two or three Farmer Reps.) It was expected that these Farmer Representatives would be the link with the Irrigation Department and other officials, and would take the initiative in organizing water management activities and resolving conflicts.
Three broad functions were defined for the farmer organizations. These were: (1) improved operation and maintenance performance by the farmers in those areas for which they had respon sibility or which they coulg handle more effectively than could the Irrigation Department (ID)," (2) solving conflicts among farmers over water, and (3) improving communications and relations between the Irrigation Department and the farmers.
Because the organizations were to be the farmers' organizations, not ARTI's or the ID's, many of the details, including decisions about what farmers were to be included, what the functions of the organization would be, and the powers and responsibilities of the Farmer Representatives were left to the farmers. Also, in the spirit of the "learning process" approach, many of the details of working with farmers were left to the Institutional Organizers. It was planned that detailed record5 of the intervention would be kept so that the most effective intervention strategies could be subsequently ascertained.
6 The initial plan was for each In.titutional Organizer to be assigned to a hydrologically-defined area consisting usually of 3 or 4 field channels and 60-100 fartners. We found later that a larger area could be assigned and the second and succeeding batches of Institutional Organizers were given larger areas, usually 6-7 field channels and 100-200 farmers.
A key element in the intervention strategy was that the Institutional Organizers were fielded in teams to cover large areas (10-30 field channels and 200-600 farmers). They could adjust individual assignments within their areas and were encouraged to become familiar with the areas of other team members. Most importantly, the teams were asked to discuss their individual experiences and difficulties in regular group meetings, as a front line problem-solving strategy. This approach had two desirable effects. First, the team problem-solving approach set an example for the farmer groups in how to tackle problems. Second, the team discus sions provided much of the feedback necessary for the "learning process" approach. These discussions partially compensated for the difficulties in supervision of the programme from ARTI located in Colombo on the other side of the island.
II. Responses to the Farmer Organization Program
In March 1981, the first batch of 32 Institutional Organizers was fielded in Gal Oya Left Bank. They had received two weeks of training on concepts and strategies of farmer organization, followed by four weeks of field training in Gal Oya. A second batch was fielded in September 1982, a third batch in March 1983 (most of them replacing initial lOs who had left the program for more permanent jobs), and a fourth in October, 1983.
The initial organizing area covered 71 field channels, 1,686 farmers, and 5,500 acres. Subsequently, the organizing area was extended by another 9,500 acres. The total area covered at the end of October, 1983, was 15,000 acres. The area covered so far is located in the head and middle areas of the system and is largely restricted to Sinhala-speaking farmers. We plan to cover an additional 11,000 acres at the tail of the system which is inhabited by Tamil-speaking farmers.
When the first batch of Institutional Organizers was fielded, specific activities and strategies for the farmer groups in the three areas of interest--operation and maintenance, conflict resolution, and improving relations with the Irrigation Department--had not been determined but were only generally mapped out; specific measures were left for the Institutional Organizers to work out with the farmers. It was expected that for the first three months after being fielded, Institutional Organizers would only study their assigned areas without
7 attempting to influence the farmers. Such study based on conversations, observation and constructing a "profile" on each field channel area was to form the basis for formulating strategies.
However, shortly after the first batch arrived in the field, it became apparent that this YaJa (dry) season would be usually water short. At tho request of the Institutional Organizers, ARTI deferred work on the profiles in favor of beginning water management activities with the farmers immediately. The experiences of that first season led to a set of water management activities that dealt with the problems in Gal Oya. Although modifications have been made (usually by farmers) in specific cases, the general programme of water manage ment activities for farmer groups developed then has evolved into a strategy for irrigation improvement. Each of the three major areas is addressed separately.
A. Operation and Maintenance of Field Channels
Three activities were found to be necessary and appropriate for farmer organizations in Gal Oya: (1) cleaning (mostly desilting) and maintaining field channels, (2) rotating water along the field channel to ensure that tail-end fields get their share of water, and (3) saving water by closing the field channel turnout when enough water has been received so that water can be sent farther down the system.
According to the rules prevailing before the farmer organiza tion program began, every farmer was responsible for cleaning a specified section of his field channel at the beginning of each season. In fact, these responsibilities were rarely fulfilled. Many channels were clogged and in disrepair, and badly needed to be desilted so that water could flow more efficiently. Without any organization to do the work all at once, the benefits of individual action could not be seen. Also, head-enders neglecting to desilt their section of field channel benefited by getting more water.
To solve this problem, the Instittotional Organizers adopted the strategy of getting the farmers to organize iJbram.,ja (gift of labor) work groups to clean the channels. Sra.madAn is a traditional method of mobilizing labor for community projects in rural Sri Lankan villages. It enjoys some religious significance, often having been organized by the village priest in the past. But in Gal Oya as a settlement scheme, traditional social customs figured less prominently in peoplc's lives. In 1981, once the Institutional Organizers began working with the farmers, about two-thirds of the field channels in the program area were cleaned by shbramndana labor. Since that time this practice has been maintained. Statistics collected in April 1983 showed that a sample of 33 armer groups, 71% reported cleaning all or parts of their channels by hramaidna since the formation of farmer
8 organizations while only 23% reported using ,hrladanad labor even once during the preceding 30 years.
Channel cleaning with _hramIapn has proven to be much more effective than individuals cleaning separate sections of the channel. According to farmer reports, some of the cleaned channels had not been properly maintained for 15 to 20 years. In January 1983, one of the second batch of Institutional Organizers convinced the farmers along one channel to clean it, for the first time that anyone there could remember. A 30-foot tree with huge roots in the bed of the channel testified to the long period of neglect. (This dhannel was in a "transition" area between head and tail, and thus between Sinhalese and Tamil farmers; 15 Tamil and 12 Sinhalese households participated in the hri ]mladn.)
In the April 1983 survey# 90% of the farmers inclined they had been "satisfied" with channel cleaning before farmer organizations; while 97% reported such satisfaction since the formation of farmer organizations. We feel the "satisfaction" prior to the program may be misleading since numerous farmers interviewed said things like, "Prior to the farmer organization program we had no shramadana campaigns. Each farmer was alloted a portion of the channel. Some farmers cleaned their portions but others did not...The situation changed completely after the farmer organization program...During the last Xkk season all members of the farmer organization got together and we had a s campaign (to clean the channel). All of the farmers on the channel participated. Those farmers who could not come, par ticipated by supplying tea and snacks to the workers." An Irrigation Department employee responsible for operating field channel gates and checking on tertiary maintenance reported, "Another important activity of the farmer organization is cleaning and maintenance of the field channel through shramadana. Because of the unity of the farmers it is very easy to organize shniamadan now. In my area, there were several s campaigns (preceding the 1983 YaA season)."
Shrami. n. labor is not used solely for channel cleaning. Since the farmer organization program began, various organizations have used shramadana labor to perform other maintenance tasks, iriclud ing building check structures, repairing bunds, and repairing bund roads. The survey conducted in April 1983 indicated that in the organized area, fully 54% of all maintenance activities other than channel cleaning (including such minimal activities as cutting branches of trees overhanging the road and repairing damage caused by one man's cattle) were performed by s labor, whereas shalmadinaL were the exception rather than the rule prior to farmer organizations.
In addition, shramadn labor is used to solve specific problems outside the normal maintenance responsibilities of the farmers. For example, in January 1983, the members of a farmer
9 organization used s labor to clean a very long field channel that was supposed to be maintained by the Irrigation Department but which had not been adequately cleaned for several years. When the desilting of a distributary channel during rehabilitation at one location decreased the water flow into one of the field channels, the farmer organization talked with the Irrigation Department officer in charge of the area and obtained his permission and technical advice to build a stone check structure in the distributary channel with shramdans labor.
In 1981 when the program startedp the Institutional Organizers found that on virtually every field channel there were some farmers who experienced water shortages. Such shortages are prevalent during all YaJa (dry) seasons and some Maha (rainy) seasons, even in the head areas of the system where the fl-st Institutional Organizers were assigned. As noted already, the 1981 as well as 1982 Yaia seasons were particularly water short; at the beginning of both seasons, the main reservoir was at or below one-quarter of its capacity.
To remedy these problems, the Institutional Organizers encouraged farmers to set up simple rotations along their field chan nels to ensure that all farmers, particularly the tail-end farmers, receiving adequate water. In addition, they suggested that farmers could help others farther down the system by consciously trying to save water. Specifically the IOs suggested that farmer organizations could afford to take water during only four or even three days of the normal five-day rotational issue in order to send the extra water down the system during the remaining day or two of their turn.
A survey of the 56 organizations created in the first six weeks found that one-quarter of the farmer groups had instituted both water rotations on their field channels and water saving for others. One-quarter had undertaken water saving only. (On their channels rotations were not needed because the water supply was ample.) Three-eighths had set up systems of water rotation without attempting to save wa er, and only one-eighth had not made any change in their practices. About 20 percent of the farmer organizations that instituted rotations did not sustain them throughout the season, eithGr because water conditions improved or because they could not maintain agreement. At the end of the season, half he groups still had rotations and half were saving water for others.
Since the system had deteriorated, almost no gates could be properly closed and locked; mud, straw, and tree stumps were used by farmers to cut off water flows. In practically all cases where water saving was agreed to on an experimental basis, the farmers had more than adequate water for the crops. Some of the efforts to save water were undercut because certain other farmers (using drainage water) found that better water management by the farmers on the field chan nels was reducing flows into the drainage channels, by as much as 50
10 percent. There were instances where such drainage-area farmers came and cut bunds or opened gates that had been closed to save water for downstream farmers. During YaJA 1982 the number of groups attempting rotations increased. In the April 1983 survey, fully 73% of the groups reported that they had instituted rotations for the 1982 Yala season although many did not sustain them the full season. Water saving, however, was less common since the 1982 Yal.A season was more water short than 1981. (The Irrigation Department issued less water in the main channels.) In April 1983, members of 82% of the groups reported plans to institute rotations for that YIL- season. During several reasons, farmer organizations on a number of particularly complex distributary channels instituted a rotation .amng field channels so that they could increase the head of water in the field channels so as to reach better the tail portions of thoE_) field channels.
There has been general satisfaction with the rotations among those groups that have been able to sustain them. One farmer reported, "The farmer organizations decided that during each five days' issue (for a channel) farmers of the head-end should get water in the first two days and then promptly send water to the tail-end for the next three days. The system of rotation has been successfully operated for three seasons (1981-83)." The success of these efforts at organizing farmers for water management stems from the group approach taken by the Institutional Organizers. By getting the farmers to talk about their water problems in groups, the Institutional Organizers were able to create a "public space" devoted to water problems. In public, individual farmers could not maintain resistance to cooperation. For example, if a tail-end farmer with a water problem would go privately to a head-end farmer to ask him to reduce his offtake, the head-end farmer could simply ignore the tail-end farmer or make his cooperation dependent on the simul taneous cooperation of all other head-end farmers. Once the problem is aired in public with all farmers present, cooperation among the farmers can be directly agreed upon and any farmer who resists risks public exposure of his unconcern for his neighbor's crops, a par ticularly censorious situation in a Buddhist society which teaches the sanctity of all life, including that of crops. A similar dynamic seems to explain the effectiveness of shramadnas for cleaning field channels and other maintenance work. For example, a farmer at the head-end of a field channel may have no need to clean the channel since he gets adequate water even without cleaning. When the channel is to be cleaned by .b a that head farmer faces group pressure to help others by contributing to the work. As one farmer put it, "Through the farmer organization programs, it has been possible for shamadan campaigns to be organized to clean up field channels (repair) bunds, roads, etc. Earlier we did not have
11 shramad activities. Previously, channel cleaning was done on an Individual basis. The re1 Yidane (a farmer appointed or elected to oversee various farm activities in a large area) allocated sections o, the canal to each farmer for cleaning. Some farmers cleaned their sections haphazardly and some neglected to clean their parts of the channel. Now there is no possibility for farmers to neglect their responsibilities."
rhe creation of the role of Farmer Representative also helped by prov!ding a focal point for group action. The basic functions of a Farmer R,.presentative as conceived by the researchers and by most of the farmer organizations were to convene meetings, oversee and enforce rotations, and meet with other Representatives and/or officials to discuss problems. No legal powers have been given to Farmer Representatives; their power consists solely of the influence they have on their fellow farmers. Yet once appointed, most Farmer Representatives have begun to take responsibility for improving water distributijn. One Farmer Representative put it thus, "As Farmer Representative I make an attempt to distribute water in the field channel equitably to all farmers. In times when there is a shortage of water, I go to see the Maintenance Oversee (a low-level Irrigation Department employee) and explain the problem to him. I have been successful in getting water to the field channel." Another Farmer Representative noted, "I am a farmer at the tail-end and this fact probably influenced the other farmers to appoint me Farmer Representative. As a farmer at the tail-end they thought that I would be motivated to be sure water gets to the tail."
Also with the Farmer Representative as leader or organizer, various maintenance projects, such as improving channels, fixing bund roads, etc. could be undertaken. Ideas, for controlling cattle on the bunds could be acted upon. Merely creating this role thus stimulated local initiative and increased local capacity to solve problems.
Neither group action nor the farmer representative role are really new concepts. The traditional s practice, however, for several reasons was not often used in Gal Oya. First, there are no well-defined settlements in Gal Oya. Houses are scattered and the administrative units - called colony units or villages - are nothing more than administrative entities, still bearing numbers rather than names, after 20 years. They do not reflect ecological, economic or sociological units. Second, the settlers of Gal Oya arrived from various parts of the island, and as no attempt was made to create communal spirit among them, no local traditions of communal work or responsibility were formed. (Abeyratne, 1982).
The farmer representative role resembles tho traditional role of V (field leader) made familiar to students of irrigation by Leach's study of Pul Eliya (1961). There is also in existence a national system of elected or appointed farmer leaders called Y~yA
12 Palaka (tract director). This system has not been effective in mobi lizing farmer participation in operation and maintenance in Gal Oya for two reasons: the areas that the Aj Palakas represent are too large and diverse, and the YAy Palakas are generally associated with political parties and political interests.
The innovation introduced by the Institutional Organizers was to apply these concepts to water problems faced in common by a small group of farmers sharing a single water source - the field channel. Because the group is small, the farmers can manage their affairs informally, and because the members share a single resource, they can effectively solve the problems associated with that resource. In addition, they can control their Farmer Representatives. The Institutional Organizers have reported several cases where the members of an organization have replaced their Farmer Representative because he was dishonest or lazy. The net effect has been a large increase in local capacity to solve problems and take initiative.
As discussed more under the third activity headinq, this structure has subsequently been extended upward in a "bottom up" manner. Representatives of field channels off long and complex dis tributaries already the first season began coordinating and rotating water distribution among field channels, as noted above. These infor mal organizations are being regularized into standing connittees with recognized responsibilities for all distributary areas now. At a higher level grouping 10-15 distributaries in a hydrologically defined service area, Farmer Ropresentatives have been holding meet ings every month or so with government staff in their area. Problems which can be resolved at that level, with resources controlled by the staff and/or farmers, are tackled by consensus. At tne District level, Farmer Representatives chosen by their peers from each large service area attend meetings of the District Agriculture Committee, hitherto composed only of district-level officials. Farmer Representatives recognize that this is an opportunity to have two-way communication about problems from the farm level to the district headquarters (kachcheri) and back, though it has not yet become as systematic and effective as desirable.
B. jRsolution of Conflicts Over Water
The farmer organizations have also succeeded in reducing the numbers and severity of conflicts over water within their areas. Of the farmers who responded to the April 1983 survey, 49% reported the existence of conflicts prior to the formation of farmer organizations but only 17% reported conflicts since that time. Speaking of the situation prior to the formation of farmer organization, one farmer said, "There were a lot of conflicts among farmers over water. Sometimes farmers would stay awake till morning guarding their poles (offtakes to fields)."
13 The reduction in conflicts is a consequence of the creation of the "public space." Most of the conflicts centered on the actions of some farmers to close off the inlets to other farmers' fields or of farmers to build check structures in the channels to increase the flow into their own fields without consulting farmers downstream. The problems that led farmers to these actions are precisely those that the farmer organizations address with their rotations and maintenance activities.
In addition, there has been a significant change in the means adopted to have conflicts settled. The farmers surveyed in April 1983 stated that earlier, 45% of conflicts were referred to government agencies for solution, 14% were simply not resolved, and only the remaining 39% were referred to other farmers or to Yalna Palakas for resolution. Since farmer organizations were created, 57% of conflicts are referred to the farmer organization, to farmers in general, or to the Farmer Representative, 39% to government officers (this figure includes referrals to Institutional Organizers), and only 4% were left unresolved.
C. Communication B'rtween Farmers and the Irrigation
When work began in Gal Oya, we soon discovered that many Irrigation Department officers held rather negative stereotypes of farmers - as lazy, uncooperative, always quarreling, ungrateful, irresponsible, etc. In the eyes of Irrigation Department officers, farmers' duties were to maintain their field channels (this is stated in the Irrigation Ordinance), to obey the rules and l ws governing water use, not to "waste" water, to cooperate wheneve the Irrigation Department asked for their help, and to accept offirjrs' explanation, .e.g., that what the farmers asked was impossible to allow for techni cal reasons. The Irrigation Department's attitude was that it could and would deliver enough water to the field channels and it was then simply a matter of farmers' using the water correctly. Understandably some officers paint an unflattering picture of fdrmers when they hear farmers complain about ID service at public meetings, when farmers break bunds and structures, when officers are beset by requests for special help, and when farmers regularly attempt to modify Irrigation Department decisions by complaining to politicians.
Subsequently we found that the farmers held similar unflatter ing ideas about Irrigation Department officers. The farmers generally expect the Department to respond positively to requests for help or when problems are reported. They are understandably displeased when ID officials claim that they cannot help because it is contract to regulations or for some other bureaucratic reason. Since a great many farmers have problems with water in Gal Oya, the attitude of many officers ttat most of the problems are caused by farmers is unhelpful. The lack of appreciation for officers shown by farmers is
14 understandable. At the Cultivation Meetings of farmers and officers held prior to each season, it was a regular occurrence for farmers to complain about the lack of service and help given by the Irrigation Department (Murray-Rust 4nd Moore, 1983).
One farmer, who is both a Farmer Representative and a Y Palaka, described the situation like this, "In those days farmers wasted a lot of time going in search of officers (to solve problems such as broken bunds, lack of field intakes, etc.). Even as a 1 Palaka when I went to see officers, they would say, "We can't do anything today, come tomorrowl" When I went the next days the officers would not be there and I have wasted my time. Even if I met the officers, the problem would not be solved. It would take a long time to get problems solved." Another farmer explained, "Prior to the farmer organization program, officers paid no heed to the problems of the farmers. There was a big distance between officers and farmers. Decisions were made at the Cultivation Meetings without any reference to farmers. Therefore, these decisions were not implemented by farmers."
As a result of the farmer organization program, officers have come to regard farmers rr,re highly and are more willing to cooperate with farmers. In turn, farmers have shown themselves more willing to listen to officials, to take better care of the system, and to cooperate in other ways. In the April 1983 survey of farmers, 61% felt that there had been a change for the better in the attitude of Irrigation Department officers. Fully 70% felt that relations betweon farmers and officers were better than before. A majority of the Irrigation Officials surveyed a month later also felt there had been an improvement in relations.
The mere existence of farmer organizations and of Farmer Representatives u. a major reason for this change in attitude. Before the farmer organization program, a farmer might come to &n Irrigation Department official to ask for help. Often, satisfying his request meant possibly harming other farmers, leading to complaints and criticisms. In other cases, satisfying the request required use of scarce funds or other resources. Even if resources were sufficient to satisfy one request, acceding to one could lead to a flood of similar requests. In these circumstances, officials were understandably unresponsive to many requests.
Once an organization has been created and a spokesman selected, the official can differentiate between requests that originate from a single individual and requests that have the backing of all of the farmers on a channel. He can determine whether satisfy ing the request will offend other farmers. In addition, he can call upon the labor resources of the farmer organization to supplement his own meager resources. As mentioned earlier, when the farmers or one channel complained that rehabilitation had lowered the water level in
15 the distributary channel so that they had difficulty getting water into their field channel, one officer gave permission and provided technical advice on building a stone check structure in the channel by means of s labor. Before farmer organizations, he would have had to get the structure built with Irrigation Department funds and labor, and that would have taken much time and effort.
In addition, the existence of farmer organizations and Farmer Representatives has led to better and more direct communications between officials and farmers. Now officials and farmers know whom to talk to to get messages across. The improvement in communication has led to an increased appreciation of each other's problems and constraints. Because they get more cordial hearings than do individual farmers speaking for themselves and because they can speak with some assurance of backing from other farmers, Farmer Representatives are now quite willing to speak directly to officials whereas in the past they often waited for the twice-yearly Cultivation Meetings or relayed their demands through politicians and other government officers.
In addition, the farmers themselves have created new avenues of communication. As noted above, the Farmer Representatives in different areas in the Gal Oya Left Bank have been holding "monthly" meetings to which they invite Irrigation Department and other officers to discuss farmers' problems. 8 These meetings are different in one important respect from other meetings between officials and fa~mers: they are initiated and chaired by farmers. 1Os do not organize the meetings or set the agenda.
The change in attitude and communication is reflected in officers' statemrnts like, "They (the farmers) understand the problems faced by the Irrigation Department officials better," and "Now they (the farmers) are able to differentiate between the responsibilities held by themselves and by the department. They feel that they should assist the officers." One engineer said, "The farmer organizations have been truly helpful. Through these (monthly) meetings it has been possible for farmers to come out with their views and it has been possible for us (Irrigation Departnent staff) to explain to farmers our views. Earlier, farmers viewed suggestions from officials with disdain and sometimes with anger. Now it is different. Farmers have learned to look at problems from different angles. It is also very easy for us to reach farmers through the Farmer Representatives."
Farmers' statements agree. For example, one farmer said, "ince the farmer organization program began, it has been possible for farmers to refer their problems to officers directly (i.e., rather than through politicians). These (monthly) meetings have also resulted in establishing more cordial links with officers."
16
& The improvement in and importance of direct communication between farmers and officers was recognized officially when the Government Agent of the district (equivalent to the District Collector in India) invited the farmers to choose a few of their Farmer Representatives to sit on the District Agricultural Committee. This committee, consisting of the district heads of all government agencies concerned with agriculture, makes many important decisions, including determining the basic pattern of water issues for the whole Gal Oya system. 9 The government agent issued his invitation for farmers to be represented on the District Aoricultural Committee because he was impressed with the seriousness and articulation of the Farmer Representatives.
III. PiXntributions of the Catalyst Agents
As indicated already, the Institutional Organizers did not bring entirely new ideas to the situation in Gal Oya. The concepts of group action, sh a, and farmer representatives were already understood by farmers in Gal Oya because of their existence in rural Sri Lanka.
The Institutional Organizers' contribution was to encourage and adapt the application of these pre-existing ideas to water manage ment at the farm and field channel level in Gal Oya. As one farmer said, "The Institutional Organizers first came...to my home and inquired whether allotment 22/130 was mine. Thereafter they came very often. At these visits they explained that farmers waste a lot of water and that it flows down the drainage .anal. This deprives many farmers of water. They also said that un'ty and cooperation among farmers should be fostered by forming farmar organizations...(At the first meeting, an Institutional Organizer) said that officers should know about farmers5 problems and that this could best be done by appointing farmer representatives."
This description of the 10 role does not seem to be, however, a sufficient explanation for tho quick progress of the program. The basic ideas were familiar to the farmers, and mot of grvernment staff were the same ones who had bGen there all along. As we have reported, the level of collective action to improve water management, which was in the farmers' interest, was low. Why were "catalyst" agents, the Institutional Organizers, necessary? Some reasons can be suggested on the basis of ideas put forward by Olson (1965), though other considerations also figure in.11
17 A. ImDetus for Organization
First, participation in an organization requires time and energy. If a farmer organization holds regular meetings to discuss problems, every member must be willing to commit time to those meet ings and to sh J_ nda and other group activities. In addition, some members must give up privileges thGy have by reason of their favored locations on the field channel. Their only return is social credit for being cooperative. As documented above, whatever rewards have been great enough that in the program area in Gal Oya, farmers have been willing to pay these costs. However, the creation of a farmer organization requires must additional time and effort frm somebody. Also, there is no assurance that the effort will succeed. I2 A field channel organization could easily fail if head-end farmers refuse to cooperate or if there are numerous "free riders" who do not participate in sbramad.an activities. In light of these difficulties, farmers in Gal Oya were not willing to take upon themselves the costs of creating organizations.
It has been the Institutional Organizers who have taken on the organizing duties and given the time and energy necessary to create the organization-, in other words, who have assumed the "start-up" costs. In fact, the Institutional Organizers had to take a more direct role in organizing farmers than envisioned at the beginning of the program. They have had to be involved in organizing shibramadaa. and meetings among the farmers as well as in acting as intermediaries between officers and farmers. For example, when a sample of farmers was asked in April 1983 why they Joined a farmer organization, 57% responded with some statement about how it would solve their problems, but 22% said tt they joined because the Institutional Organizer asked them to. Also, 55% of the respondents to a question about who organized channel cleaning for 1983 Yala mentioned the Institutional Organizer alone or along with the farmer organization or Farmer Representative.
We would note, however, that farmers recognize the Institutional Organizers have no ultimate responsibility for these organizational tasks. In the same survey, Institutional Organizers were mentioned by very few respondents (6% or less) when asked who should take responsibility for various operation and maintenance tasks.
There may be a second reason why Institutional Organizers were so useful in Gal Oya. One of the primary benefits of forming a farmer organization is to get better cooperation from the Irrigation Department officers. If only one small group of farmiers creates its own organization, it is not likely to receive Irrigation Department recognition. Without such recognition we believe the farmers w'll not
18 find it worthwhile to create and maintain an organization. Indeed, in the original planning of the program, we underestimated the importance to the farmers of officials' cooperation. The Institutional Organizers because of their activity and their status, guaranteed some sort of official recognition and cooperation for the farmer organiza tions and Farmer Representatives. A third reason had to do more with factors intrinsic to the settlement scheme situation (Abeyratne, 1982). Gal Oya, like most irrigated settlement schemes, had brought in people from all parts of the country, settlers of different geographical origin, ethnicity, caste, religion, and so on. This heterogeneity has contributed to a continuing lack of social cohesiveness or feeling of community in most parts of the scheme, despite the passage of years. It is reflected mostly in the lack of community-wide organizations of any sort and concomitantly, in the lack of the kinds of leadership that exist in more established communities. Thus the catalyst agent provided the necessary initial impetus to forming farmer organizations, which otherwise would have been lacking.
B. Value Influences
There are also some considerations -that derive not so much from structural (role) relationships as from normative (value) orientations. Arthur Maass, who has previously analyzed Irrigation management experience in Spain and the United States emphasizes that individuals have many different competing values. Which will prevail in specific situations depending on the way that situation is defined by others as well as by one's self.l5 Farmers, like others, are motivated both to pursue their own advantage and to value the security and solidarity of their community. Norms of personal gain and of fairness to others co-exist in some tension. bich set of values will influence behavior - the more selfish or the more altruistic - can be affected by the kind of "public space" described previously, where generous and cooperative action is more readily Justified than self serving behavior.
Whether people choose to seek individualistic or collective solutions to identified probleas also is affected by the climate of opinion around them, The Institutional Organizers in their discus sions with farmers 3mphasized the value of fairness to all, of equal sharing of water1 and they also advocated the strategy of group responsibility. While not all farmers would be moved by this reason ing and this ethic, for many the balance could be tipped in such a direction by the group discussions led by the Organizers. To be sure, the resulting cooperative action produced benefits (Pareto optimal -- basically nobody lost while some gained), so this reinforced a norma tive orientation which supported more group-serving behavior. We are not saying that values by themselves determine action, independently
19 of "interost." But some influence of mobilizing normative orienta tions seems to have been involved.
C. The Nonpolitical Status of the Catalyst Agent. Farmers not only needed reassurance that the farmer organiza tions would get official recognition but they also needed assurance that their efforts would not be quashed by government agencies or politicians for political reasons. Sri Lanka is a heavily politicized country and farmers have numerous experiences with organizations that became so identified with party political interests that only certain sections of the community were benefited. It was thus crucial that the Institutional Organizers could identify themselves as nonpolitical and as serving all farmers regardless of political affiliation. One farmer recalled that at first "the farmers thought this (program) w~s a political stunt." Another noted, "At the outset, the Institutional Organizer went to the home.s of the farmers and explained the farmer organization program. Later meetings were organized and Farmer Representatives appointed. Initially the farmers did not have much faith in what the Institutional Organizer had to say. The farmers know of many societies and organizations which proved to be failuros. The people were tired of these organizations. They thought that the farmer organization would be like the other organizations that failed. Because of this the Institutional Organizers had to work very hard to convince farmers that the farmer organization is dif ferent from the othar organizations."
The Institutional Organizers were employees of ARTI, a research institution, and were associated with an American university. This may have helped to establish the Institutional Organizers' non political status in the eyes of the farmers. Of greater importance, however, was the fact that the Institutional Organizers actually lived with the farmers and constantly showed interest in their problems. One farmer explained, "He (the Institutional Organizer) came as a complete stranger to us. For the first day or so we had doubts and suspicions about him. But he spoke to us with kindness and sincerity and we started to trust him." The Institutional Organizers are university graduates. Graduates were recruited in part because they were easily available through government recruiting agencies and in part because it was felt that they would be able to absorb the necessary training more oasily than would recruits with less education. We feared, however, that there would be a social gap between the Institutional Organizers and the farmers. In practice, no gap appeared. The Institutional Organizers' status as graduate has proved to be an advantage, as it has facilitated their relations with Irrigation Department and other officers. Once the Institutional Organizers began living with the
20 farmers# they came to strongly identify with farmers' problems. Farmers came to refer to Institutional Organizers as "our sons and, daughters," thus according them a niche In the farming community.16
Iv. C u L_
The farmer organization experiment in Gal Oya has had con siderable success, though we are mindful that still much strengthening remains to be done, and there can still be setbacks. 17 As we have shown, the use of Institutional Organizers as catalyst agents has succeeded in producing a large number of small farmer organizations that have greatly improved water management practices and relations between farmers and Irrigation Department officers. We attribute this success to certain practices or that may be relevant to other programs aimed at improving water management in large irrigated settlement schemes.
These principles can be summarized as follows:
(1) The organizations should be hydrologically based, that is, the members of the organization should share and Jointly control a single source of water such as a field channel turnout.
(2) The organizations should be small enough to be both self-managing and socially viable. In Gal Oya we found that 10 to 20 farmers constituted a suitable size.
(3) In a situation where there is a high probability that farmer organizations will becime politicized and there after serve only the interest- of certain segments of the population, it is imperative that the catalyst program develop and maintain a non-political character.18 Apart from the usual po itical divisions this bec3ines all the more important in an area that has a multi-ethnic com munity where each ethnic group supports a different political party.
(4) In a large irrigation scheme where water is controlled and operated by both a government agency and by farmers (albeit at different levels), it is important that links are forged between the two so that an environmint of mutual respect is fostered and is conducive to the effec tive working of the irrigation system.
(5) Official recognition of the farmer organizations is necessary if the latter are to have any sustained impact on decisions relating to water management.
21 (6) While in traditional rural Sri Lankan villages, certain norms and disciplines associated with the utilization of water were an integral part of community life# they are not automatically applied to water management ir,Eqttle ment schemes. Therefore while the concepts themselves are not new, they must be adapted and applied to the particular conditions of irrigated settlement schemes.
(7) It was found to be desirable that the catalyst agent, while responsible for an individual area, works as a part of a team that covers a larger area. Working as a member of a team was found to be an effective management device that enables the catalyst agent to share his/her experiences and to bring collective thinking to bear upon problems.
(8) The "learning process" approach afforded flexibility to the catalyst agent such that the program could be adapted to the particular conditions of each farmer organization area.
(9) It was found that the fact that the catalyst agents were university graduates meant that they had useful status in the eyes of government officials; at the same time, the fact that they lived with the farmers enabled them to develop acceptance by the farmers.
Successful farmer organization programs can perhaps be developed without using catalyst agents. The necessary factors are the existence of (1) someone with the time and energy to create the organizations, (2) a guarantee of influence over the decisions of government officials responsible for managing the irrigation scheme, and (3) evidence of dedication to serving the farmers' interests. There have been some isolated examples in Sri Lanka of government officers who have created farmer organizations to improve water management. 9
Yet we feel that catalyst agents can and probably should be used in most cases. Catalyst agents can demonstrate their dedication to serving the farmers' needs much more easily than can government officers., who have many other responsibilities anyway.
Two important matters remain to be tested. First, all of our experience has been with Sinhala-speaking farmers in the head and middle areas of the Left Bank. We are Just now beginning to work with the Tamil-speaking farmers in the middle and tail of the system. Both the ethnic differences and the difference in water availability will affect the program. Because we have adopted a learning process approach, we will modify the program as needed. However, we do not yet know what modifications will be required.
22
1Lr Second, we intend to withdraw most of the Institutional Organizers from Gal Oya in the next year or two. What will happen then remains to be seen - how strong the organizations have become on their own, whether feelings of "dependence" on the IOs have been avoided, whether official cooperation will continue. Creating such social infrastructure as farmer organizations is akin to building the physical reservoir and channels; some up-front investment is needed, but also there are some maintenance expenses. We have planned on having a few experienced IOs remain in the area in an "ombudsman" role, to continue training new Farmer Representatives, and to trouble shoot to keep the organizations strong.
We are expecting the committees of Farmer Representatives to have an ofticially recognized decision-making role in the operation of the Gal Oya system. One indication of the good performance of the program is that the senior officers of the Irrigation Department agreed (unanimously) in June, 1983, to link a four-tiered structure of farmer organization Into a new Irrigation Management branch of the Irrigation Department. The organizational models and favorable experiences in Gal Oya and also at Minipe (N.G.R. de Silva, 1982) provided justification for giving farmers a larger role in water management, from the field channel level up to and including the entire project area.
We would like to thank Hammond Murray-Rust for reviewing this paper, though all responsibility for the exposition rests with us, loosely, collectively. Because the paper was drafted in three loca tions (New Delhi, Colombo and Ithaca) in successive drafts, we have not been able to coordinate our formulation and emphasis on all points. Thus authors may feel somewhat differently about various points made in this collective draft. We expect further refinement and reconciliation of our presentation once we can talk more about this draft in January.
23 1) Too little is known of the soils of Gal Oya. In 1970, the Farmer Commission's evaluation of the Gal Oya scheme (Sri Lanka, 1970) recommended that thorough soil studies be done before any rehabilitation was undertaken. No such study has been done yet. 2) Although one could see that water was flowing through upstream fields and into the drainage canals, large additional land areas were irrigated with that water. No determination of the amount of land irrigated with drainage water has been made nor has the amount of water actually "wasted" been estimated. The extent of re-use remains to be measured. 3) David Korten, a member of the team that visited Gal Oya in January, 1980, was a Ford Foundation advisor to the National Irrigation Administration in Manila at the time.
4) According to the Irrigation Ordinance, farmers are responsible for the maintenance of the last half mile of field channels and distributaries (tertiary and secondary canals). In addition, it is assumed that farmers will solve some of their own conflicts. As a practical matter, the Irrigation Department has had neither the personnel nor budget to operate and maintain all of its responsibilities in Gal Oya or any other large system. However, prior to the Water Management Project, the Irrigation Department publicly maintained the position that it was controlling the system down to the farm turnout. 5) The rotation systems were devised by the farmers on each channel, Half of the groups that instituted rotations chose to close head-end field turnouts first so as to send water to the tail for one or two days before taking water at the head of the field channel. We find it significant that one-fifth of those that began with head-end-first systems switched to tail-first systems when the initial system proved ineffective while none of those who began with tail-first systems changed. In other words, where farmers switched it was to more probably equitable arrangements than to ones less equitable.
6) These were not necessarily the same farmers as farmers could do either or both. Only 2% of those saving water were giving up three of their five days' issue; 55% were closing their channel for two days; and 53% were saving one day of water for the tail enders.
7) Note that the Irrigation Department itself has helped create this problem by the attitude that all irrigation systems are the same. As a consequence the Irrigation Department sets a single
24
I, policy for the whole country that may well be harmful in a particular situation. For example, the Irrigation Department policy is that all field channels should carry one cusec of water and serve 30 acres Wtjhout regard to soil conditions. The dates of first issue of water for each season have previously been set on an island-wide basis.
8) In fact the meetings are not held every month. During par ticularly busy months for farmers, they are often not held. At present about eight meetings are held each year.
9) the invitation came at a meeting between Farmer Representatives and the Government Agent in February 1982 at which the Farmer Representatives sought to have the area authorized for irriga tion in the upcoming dry season increased from 5,000 acres to the more usual 15-20,000 acres. The agreement by the Government Agent and the District Agricultural Committee to raise the allocation to 12,000 acres was seen as a victory for the programs though In fact the decision merely followed the usual pattern. Still, the public perception was that the farmer organizations helped to influence the decision. See Murray-Rust (1983).
10) We have not encountered the kind of resistance which might have been predicted on the basis of Wade's analysis of major irriga tion scheme administration in India (1982). His is a contruver sial though not undocumented account.
11) Olson's analysis has stood for a long time in the literature, but is now receiving some persuasive criticism as too individualistic and as internally inconsistent (Kimer, 1981; Runge, 1984).
12) This role of "leadership" bearing the costs of organization in peasant communities has been discussed by Popkin (1979), and the specific need to handle "the assurance problem" (as more impor tant than "the free-rider problem") is dealt with by Runge (1981 and 1984).
13) Farmers frequency refer to IOs in very friendly and cordial terms, as noted below. Such friendship has been found important in the community organizing work of the Indian Social Institute (Volken et al., 1982:73).
14) The Tamil areas in the scheme form an important exception to this generalization. In the Tamil areas, whole villages were relocated; therefore, traditional leaders exis'. and continue to exert Influence.
25 15) "Each individual plays a number of roles in his life and each role can lead him to a unique response to a given choice situation. Thus individuals have the capacity to respond to issues - to formulate their preferences concerning them - in several ways# including what they believe to be good for themselves, largely their economic self-interests; what they believe to be good for particular sectional, occupational, social, or religious groups; and what they believe to be good for the political community. The difference among these can be defined in terms of breadth of view. Responses are community? rather than privately, oriented to the extent that individuals have given greater emphasis to their estimates of the consequen ces of their choices for the larger community. Furthermore, the responses that individuals give in any choice situation will depend in significant part on how questions are asked of them. This means not simply the way questions are worded, but the total environment in which they are put and discussed." (Maass (1983:23). He cites an experiment where people took different positions (even privately) on the question of birth c-ntrol according to what they perceived to be the prevailing norm of those around them.
16) See footnote 13 above. On the generrl strategy of using such "catalyst," see Chapter 8 in Esman and Uphoff (1984). A similar strategy has been used in Thailand to reach and organize the rural poor, relying on informal procedures for forming groups and selecting leaders, following the same methodology of visting households (Rabibhadana, 1983). There local officials, however, were a barrier to the farmers' organizations, and it is very cleLr that the organizations could not have been set up by or through officials. In Gal Oya, such officials initially viewed as part of the problem became part of the solution.
17) The program managed to survive two major blows during the summer of 1983, first the loss of almost two-thirds of the 10 cadre when the government opened up several thousand teaching posi tions with mor job security than the IOs could be given, and then the comf,unal violence in tha country at the end of July. The Gal Oya project area was spared violence during the time when there were outbreaks elsewhere, though we cannot know to what extent the farmer organization program contributed. (Gal Oya spans settlement areas of the two ethnic communities and had been the scene of previous strife, as recently as 1981.) Tamil irrigation engineers have been working in recent years quite closely and amicably with mostly Sinhalese farmer organizations, and Sinhalese Farmer Representatives have stated that there should be a single water management organization for all farmers in the area regardless of language. A new batch of Sinhala-speaking IOs has been trained and deployed, carrying the organizational effort forward, and a batch of Tamil-speaking
26 organizers have been fielded in the tall-end areas despite the varirus difficulties.
18) We have boen impressed with farmers' determination to keep their organizations from becoming politicized. Even some of the previously most prominent and partisan farmers in the area have, after initially opposing the program, accepted its non-partisan orientation. One even remarked to us that "politics is cancer for farmer organization." He said that once farmers and offi cials work cooperatively together to solve irrigation problems, farmers will have no reason to seek politicians' help and interference. The District Minister, recognizing the value of non-political farmer organizations, has avoided personal invol vement with them. For a few days during the 1983 national eloction campaig,, spokesmen for both major parties in the district made the farmer organization program an issue (pro and con), but apparently behind-the-scenes advice from farmers led both to drop the issue and the program did not become embroiled in partisan politics as was to be feared.
19) A documented example is the creation of water management commit tees in the Minipe scheme (N.G.R. dv Silva, 1981). The driving force behind that experiment was Godfrey de Silva, who at the time was the Deputy Director of Irrigation for the district that includes the Minipe scheme.
27 References
Abeyratne, Shyamala 1982 The Impact of Second-Generation Settlers on Land and Water Resource Use in Sri Lanka, Rural Development Committee, Cornell University, Ithaca, New York.
Brohier, R.L. 1934-5 Ancient Irrigation Works in Ceylon, three volumes. Ceylon Government Press, Colombo.
Chambers, Robert 1975 Water Management and Paddy Production in the Dry Zone of Sri aJn. . ARTI, Colombo. De Silva, K.M. 1981 A History of Sri Lanka. Oxford University Press, New Delhi. De Silva, N.G.R. 1981 Farmer Participation in Water Management: the Minipe Project in Sri Lanka. Rural Develooment Participation Review, 3(1), 16-19. Rural Development Committee, Cornell University, Ithaca, New York.
Esman, M. and N. Uphoff 1984 Local Organizations: Intermediaries in Rural Development. Cornell University Press, Ithaca, New York, forthcoming.
Indrapala, K., ed 1971 Tne Collapse of the Ralarata Civilization in Ceylon and the Drift to the Southwest. University of Ceylon# Peradeniya Kimber, Richard 1981 Collective Action and the Fallacy of the Liberal Fallacy. World Politics# 33(2)p 178-96. Korten, D.C. 1980 Community Organization and Rural Development: A Learning Process Approach. Public Administration Review, 40(5), 480-511.
Leach, E.R. 1961 Pul Eliya: A Village in Ceylon. Cambridge University Press, Cambridge. Maassp Arthur 1983 Congress and the Common Good. New York: Basic Books.
28 Maass, Arthur and Raymond L. Anderson 1978 ...an the Desert Shall Reloice: Conflict, Growth and Justice in Arid Environments. M.I.T. Press, Cambridge, Mass.
Murray-Rust, D.H. 1983 Irrigation Water Management in Sri Lanka: An Evaluation of Technical and Policy Factors Affecting Operation of a Main Channel System, Doctoral dissertation, Department of Agricultural Engineering, Cornell University, Ithaca, New York.
Murray-Rust, D.H. and M.E. Moore 1983 Formal and Informal Water Management Systems: Cultivation Meetings and Water Deliveries in Two Sri Lankan IrrIgation Systems. Cornell Irrigation Studies Group, Cornell University, Ithaca, New York.
Olson, Mancur 1965 The Logic of Collective Action: Public Goods and the Theory of Groups. Harvard University Press, Cambridge, Mass.
Popkin, Samuel 1979 The Rational Peasant: The Political Economy of Rural Society in Vietnam. University of California Press, Berkeley.
Rabidhadana, Akin 1983 The Transformation of Tambon Yokkrabat, Changwat Samut Sakorn. Thai Journal of Development Administration, 22(1), 73-104.
Roberts, Michael 1967 The Paddy Lands Irrigation Ordinances and thr, Revival of Traditional Irrigation Customs, 1865-1871. Ceylon Journal of Historical and Social Studies, 10, 114-30. Reprinted in E.W. Coward, Jr., ed., Irrigation and Agricultural Development In Asia, Cornell University Press, Ithaca, New York, 1980, 186-202.
Runge, C.F. 1981 Common Property Externalities: Isolation, Assurance and Resource Depletion in a Traditional Grazing Context. American Journal of Agricultural Economics, 63, 595-606.
29 1984 Institutions and the Free Rider: The Assurance Problem in Collective Action. Journal of Politics, February, forthcom ing. Sri Lanka, Republic of 1970 Report of the Gal Oya Proiect Evaluation Committee. Government Press, Colombo.
Uphoff, Norman 1982 Contrasting Approaches to Water Management Development in Sri Lanka. Third World Legal Studies, 1982. International Center for Law in Development, New York, 202-248. Volken, Henry, Ajoy Kumar and Sara Kaithathara 1982 Learning from the Rural Poor: Shared Experiences of the Mobile Orientation and Action Team. Indian Social Institute, New Delhi.
Wade, Robert 1982 The System of Administrative and Political Corruption: Canal Irrigation in South .3tdi 18(3) ,287-38 India. Journal of Development
Wfjayaratne, C.M., M.L. Wickrama',irs. , and N. Uphoff, eds. -InitialAnalysjiof__LieRehabilitation Situation in Left Banks Gal Oya. 1980 Ybr--ook for Sri Lanka Water Management ReseIrcb, ARTI, Colombo.
30 ANNEX C: PROJECT COST ESTTMATES
This annex contains two groups of tables that provide the basis for the financing plan in the financial analysis section. In the first group# Tables C-1 to C-1O, estimated project costs are presented by project component. Costs are allocated among the three funding sources: AID loan, AID grant, and the GSL.
The second group includes Tables C-11 to C-19. These tables present estimated costs by project component distributed over the life of the project by funding source. The purpose of these tables is to show the schedule of disbursements by line item. It is possible to envision how technical assistance, construction, commodities, training, personnel, contracted personnel and research/studies are allocated among the six project components and shows how the implemen tation activities are supported finai~cially.
Tables C-20 to C-23 present the cost data for the project sites. The total project costs by component for each of the sites (Polonnaruwa District tanks are treated as one site) are listed in Table C-20. Also, the project costs by year are given for the Polonnaruwa District tanks (Table C-21), the Gal Oya Right Bank Canal system (Table C-22), and the Gal Oya Left Bank Canal system (Table C-23).
1 Table C-1. Summary Cost Estimate by Element
Local 1Foreign Exchange Total Grant Loan
Element
Operation & Maintenance 5,003,200 1,200,000 8,782,000 14,985,200
Farmers' Organizations 99,000 450,000 993,200 1,542,200
Financial Management 180,000 1,320,000 120,000 1,620,000
Monitoring & Evaluation 391,500 2,220,000 70,000 2,681,500
Training 1,050,000 450,000 729,000 2,229,000
Research/Studies 750,000 645,000 202,000 1,597,000
SubTotal 7,473,700 6,285,000 10,896,200 24,654,900
Contingencies @ 10% 747,370 628,500 1,089,620 2,465,490
Inflation @15% local, @ 5% YX 1,121,055 314,250 544,810 1,980,115
Total 9,342,125 7,227,750 12,530,630 29,100,505
2 Table C-2. Cost Estimate for Operations and Maintenance Component
LC FX
Technical Assistance G Loan Polonnaruwa Irrigation Engineer 30 mos @ $15,000/mo 450,000 Systems Engineer 7 mos @ 15,000/mo 105,000
Gal Oya Irrigation Engineer 30 mos @ 15,000/mo 450,000 Systems Engineer 3 mos @ 15,000/mo 45,000 Design Engineer 6 mos @ 15,000/mo 90,000 Computer Specialist 4 mos @ 15,000 60,000
GSL Personnel 27 TA level 60 mos x 27 x 100/mo 162,000 27 WS level 60 mos x 27 x 60/mo 97,200 Gal Oya 0 & M Staffing 1,200,000
Construction Structural Improvements 3,448,000 5,172,000 Operation Centers 96,000 144,000
Commodities Construction Equipment (See Table AI-3) 2,665,000 Radio Comm. Equip. (See Table AI-3) 202,000 Engineering Equip. (See Table AI-3) 199,000 Transportation (See Table AI-3) 400,000
Totals 5,003,200 1,200,000 8,782,000 Table C-3. Detailed Estimate of Commodities for Operations and Maintenance
Item Gal Oya Irr. Proj. Polonnaruwa District Total Unit Price Total Price Left Bank Right Bank DDI Parakrama Giritale Minneriya Kaudulla DDI Number $(100O's) $(lOOO's) Maint. Equip. Front-End Loader 2 1 2 1 6 57 342 Vibratory Roller 2 1 2 1 6 7.8 46.8 Backhoe, large 1 1 2 65 130 Backhoe, small 2 1 2 1 6 45 270 Concrete Mixer 2 1 2 1 6 7.8 46.8 Farm Tractor-Trailer,45hp 10 6 10 6 32 11 352 Tractor 45hp Bowser 2 1 2 1 6 32.5 195 Crawler Tractor, IOOhp 3 2 3 2 10 78 780 Low-Bed Trailer 1 1 1 1 4 15 60 Spare Parts 444.4 Subtotal 2665
Radio Equipment . Radio, Base Station 1 1 1 1 1 1 1 7 3.7 25.9 Radio, Field Station 8 3 7 1 5 2 26 ,.7 96.2 Radio, CB (Jeep) 9 4 2 5 1 5 3 2 31 0.5 18.6 Walkie-Talkies 60 30 30 11 28 16 175 0.2 3.5 Spare Parts 26.3
Subtotal 202
Field & Office Equip. Current Meters 4 2 3 2 3 2 2 18 2 36 Theodolites 1 1 1 1 1 1 6 4 24 Levels 1 1 1 1 1 1 6 1.2 7.2 Photocopiers 1 1 1 1 1 5 3.8 19 Typewriters 1 1 1 1 1 1 1 1 8 1.5 12 Air Conditioners 2 2 2 2 2 2 2 14 1.2 16.8 Computer W/3 terminals 1 1 1 1 1 1 6 14 84 Subtotal 199
Transportation Jeeps 9 4 2 5 1 5 3 2 31 10 310 Motorcycles, 100cc 9 4 2 5 1 5 3 2 31 1.2 37.2 Spare Parts 52.8 Subtotal 400
TOTAL 3466 Table C-4. Construction Costs of Operation Centers
Location Description Cost (Dollars) Gal Oya, DDI Building, 20' x 40' 16,000 Furnishings 3,000 Electrical (controls, voltage) Sub-Total 24,000 Polonnaruwa, DDI Building, 20' x 40' 16,000 Furnishings 3,000 Electrical (controls, voltage) 5,000 Sub-Total 24,000 Parakrama *Building, 60' x 40' 48,000 Furnishings (1,500;3,000;1,500) 6,000 Electrical (lines, controls, voltage) 10,000 Sub-Total 64,000 Minneriya *Building, 60' x 40' 48,000 Furnishings(1,500;3,000;1,500) 6,000 Electrical (lines, controls, voltage) 10,000 Sub-Total 64,000 Kaudulla *Building, 60' x 40' 48,000 Furnishings (1,500;3,O0O;1,500) 6,000 Electrical (lines, controls, voltage) 10,000 Sub-Total 64,000
TOTAL 240,000
*Building has three major compartments: (1) middle 20' x 40' is air-conditioned Operations Center (2 air conditioners for each Operations Center included in Procurement List); (2) end compartment 20' x 40' f-r Project Manager's staff responsible for financial management and for monitoring, evaluation and feedback activities; and (3) end compartment 20' x 40' for Irrigation Engineer's staff responsible for financial management and for operations, including Special Tasks Group.
5 Table C-5. Cost Estimate for Farmers' Organizations Component
Technical Assistance LC nFX National Level 1 Farmer Organization Specialist 24 mo. @$15,OO0/mo 360,000 Short-term Farmer Organization Spec. 6 mo. @$ 5,000/mo 90,000 GSL Personnel 1 Farmer Organization Dep Dir. @ 300/mo 18,000 11 Monitoring Officer @ 150/mo 9,000 1 Recruitment Officer @ 150/mo 9,000 1 Secretary @ 100/mo 6,000 1 Driver @ 50/mo 3,000 9 Field Supervisors @ 100/mo 54,000 132 IO's for 1st year @ 75/mo 118,800 199 IO's for 2nd year @ 75/mo 179,100 243 IO's for 3rd year @ 75/mo 218,700 188 IO's for 4th year @ 75/mo 169,200 136 IO's for 5th year @ 75/mo 122,400 20 per year for attrition:100 1O's @ 75/mo 90,000 Commodities 1 Jeep @ 10,000 10,000 0 & M 9 Motorcycles @ 1,200 10,800 300 Bicycles @ 120 36,000 Misc Supplies 20,000 4 Typewriters @ 1,500 6,000 Office Furniture 10,000 Spare Parts 2,200
TOTALS 99,000 I 450,000 993,200
6 [ Table C-6. Cost Estimate for Financial Management Component
LC FX Grant Loan Technical Assistance 1 Project/Financial Manager/Team Leader 60'"o8 @ $15,000/mo 900,000 Compuror Specialist 4 nos @ 15,000/mo 60,000 Polonnaruwa Ag. Economist/Financial Manager 12 rns @ 15,000/mo 180,000 Gal Oya Ag. Economist/Financial Manager 12 ,ms @ 15,000/mo 180,000 GSL Personnel 1 Financial Management Dep Dir. @ 300/mo 18,000 9 Financial Officers @ 150/mo P1,000 I Secretary @ 100/mo 6,000 1 Driver @ 50/mo 3,000 3 District Financial Officers @ 100/mo 18,000 9 Project Financial Officers @ 100/mo 54,000
Commodities 1 Jeep @ 10,000 10,000 Spare Parts 1,600 2 Typewriters @ 1,500 3,000 7 Micro-Computers @ 14,000 98,000 2 Air-Conditioners @ 1,200 2,400 Office Equipment 5,000
TOTALS 180,000 1,320,000 120,000
7 Table C-7. Cost Estimate for Monitoring and Evaluation Component
LC FX Grant Loan Technical Assistance Computer Specialist 4 mos @ $15,000/mo 60,Of' Polonnaruwa Irrigation Engineer 30 mos @ 15,000/mo 450,000 Ag.Econ./Financial mgr. 12 wxs @ 15,000/mo 180,000 Agronomist 18 mos @ 15,000/mo 270,000 Short-term Ag.Economist 6 mos @ 15,000/mo 90,000 Agronomist 6 mos @ 15,000/mo 90,000 Gal Oya Irrigation Engineer 30 mos @ 15,000/mo 450,000 Ag.Econ./Financial Mgr. 12 mos @ 15,000/mo 180,000 Agronomist 18 mos @ 15,000/mo 270,000 Short-term Ag.Economist 6 moo @ 15,000/mo 90,000 Agronomist 6 mos @ 15,000/mo 90,000 GSL Personnel
1 Monitoring & Evaluation DD 6Omos @ 300/mo 18,000 3 Monitoring Officers 60 mos @ 150/mo 27,000 1 Secretary 60 mos @ 100/mo 6,000 1 Driver 60 mos @ 50/mo 3,000 Polonnaruwa District 1 Engineer 60 mos @ 150/mo 9,000 1 Sociologist/Eo:n. 60 mos @ 150/mo 9,000
1 Agronomist 60 mos @ 150/mo 9,000 Gal Oya D.strict
1 Engineer 60 mos @ 150/mo 9,000 1 Sociologist/Econ. 60 mos @ 150/mo 9,000 1 Agronomist 60 mos @ 150/mo 9,000 Project Level 9 TA Engineers @ 100/mo 54,000 9 TA Economists @ 100/mo 54,000 9 TA Agronomists @ 100/mo 54,000 27 WS @ 75/mo 121,500 Commodities 27 Motorcycles @ 1,200 32,400 2 Jeeps @ 10,000 20,000 Spare Parts 7,600 Office Furniture 10,000 TOTAL 391,500 2,220,000 70,000
8 Table C-8. Cost Estimate for Training Component
Local Foreign Exchange Grant Loan GITI TA 1 Training Specialist 3 mos/yr for 5 yrs @ $15,000/mo 225,000 Overseas training 250,000 In-House Training 5 yrs @ 50,000/yr 250,000 Hardware (See Table AI-9) 57,000 SLIDA In-House Training 5 yrs @ 50,000/yr 250,000 Hardware (See Table AI-9) 21,000 Study Tours 40,000 ARTI In-house Training 5 yrs @ 40,000/yr 200,000 Hardware (See Table AI-9) 7,000 Study Tours 40,000 PASE TA - 1 Training Specialist 3 moB/yr for 5 yrs @ 15,000/mo 225,000 Overseas Training 250,000 In-House Training 5 yrs @ 50,000/yr 250,000 Hardware (See Table AI-9) 50,000 University of Moratuwa In-House Training 5 yrs @ 10,000/yr 50,000 University of Peradeniya In-House Training 5 yrs @ 10,000/yr 50,000 Hardware (See Table AI-9) 14,000
TOTAL 1,050,000 450,000 729,000
9 1 Table C-9. Detailed Costs of Commodities for Training Component
Item No. Cost ($1,O00's)
Unit Total Galgamuwa Irrigatiun Training Institute (GITI) 4 WD Vehicle 2 13 26 Spare Parts 3 Audio Visual Training Aids 9.2 Drafting Equipment 2 Video Rqcorder 2 0.8 1.6 Color TV 2 0.7 1.4 Photocopier 1 3.8 3.8 Typewriters 2 1.5 3 Library Acquisitions 7
Subtotal 57 Agrarian Research and Training Institute (ARTI) Library Acquisitions 7 Sri Lanka Institute of Development Administration (SLIDA) Micro-Computer w/3 terminals 1 14 14 Library Acquisitions 7
Subtotal 21 University of Peradeniya (UOP) Micro-Computer w/3 terminals 1 14 14 Project of Accelerated Settlement Experience (PASE) Jeep 2 10 20 Spare Parts 2 Audio Visual Training Aids 9.2 Drafting Equipment 2 Video Recorder 2 0.8 1.6 Color TV 2 0.7 1.4 Photocopier 1 3.8 3.8 Typewriters 2 1.5 3 Library Acquisitions 7 Subtotal 50
TOTAL 149
10 Table C-10. Cost Estimates of Research Studies Component
Item Local Foreign Exchange -rant Loan
0 & M Fee Incentives 385,000 Farmers' Organization Alternative 215,000 Levels of Irrigation,Hardware vs Software 125,000 125,000 Study of Farmer Managed Tanks 300,000 Water Management in Sri Lanka 65,000 Intensity of Management 185,000 Losses in Irrigation Ssytems 110,000 Development of Daily Operational Model 75,000 Commodities U. of Moratuwa 2 Current Meters @ 2,000 4,000 1 Surveying Equipment @ 2,000 2,000 U. of Peradeniya 2 Current Meter @ 2,000 4,000 1 Surveying Equipmeht @ 2,000 2,000
TOTAL 750,000 645,000 202,000
]]1 Table C-11. Detailed Cost Estimates for Research Studies
I. Personnel & Benefits STUDY CODE I I I_ Duration (yrs) IV V VI vii v 5 3 5 5 2 5 2 5 Principals1(s) I2I ARTI ARTI ARTI(1) ARTI ARTI UP(l) wxS WKS I4S SLIDA(2) IDRIC WHS UM(2) ID International Principal Researchers ((60))** (12)* (12) ( 6 (Without cost to ISM Project) (12) (6) (36) Local Institution:Principal Res'archer No. of Han Months 60 36 60 60(l) 24 60 24(1) Rate ($/month) 60(2) 24(2) 400 400 400 400 400 400 400 - Amount ($1,000) 24 14.4 24 48 9.6 24 19.2 - Senior Scientists No. of Man Months 60 24 60 - - Rate (S/month) - - 36 400 4W 400 - 400 Amount ($1,000) 24 9.6 24 -. . 14.4 Junior Scientists No. of Man Months 120 144 120 60(l) 24 60 24(1) 36 Rate (S/month) 60(2) 200 200 24(2) 200 200 200 200 200 Amount ($1,Oo) 200 24 28.8 24 24 4.8 12 9.6 7.2 Interviewers/Data Collectors No. of Man Months 240 144 120 120(1) 24 120 48(1) - Rate ($/month) 120(2) 48(2) 1O 100 100 100 100 100 100 - Amount ($1,000) 24 i,.4 12 24 2.4 12 9.6 - Data An-lysts/Statistical Clerks No. of Kan Months 60 36 120 120(1) - 120 24(1) 36 Rate (/month) 120(2) 24(2) 100 100 100 100 - 100 100 100 Amount ($1,000) 6 3.6 12 24 - 12 4.8 3.6 Consultants (Local) No. of Man Months 60 12 15 12(l) 12 12 - -
Rate (8/month) 12(2) 400 400 400 400 400 400 Amount ($1,000) - 24 4.8 6 9.6 4.8 4.8 - - Total Personnel Benefits ($1,000)& 126 75.6 102 129.6 21.6 64.8 43.2 25.2 * items in single parentheses ( ) are professional inputs likely to be provided by WS - Spe-ial Studies Budget and not attributable to ISM Project. item in double parentheses (( )) is professional input likely to be provided by Ii Senior Staff half-time basis, cost borne by IIHI Core on Budget and not attributable to ISM Project.
12 Table C-11. (continued) 2/3 II.Travel & Field Expenses Study Code I II III IV V VI VII VIII 11141 IMSII WKJSII ItSII WHSII *On Site No. (60) (12) (12) (12) (12) Rate 400 300 300 300 300 Amount 24,000 3600 3600 3600 3600 Trips to Site by No. 60 36 60 60 5 60 24 12 Sr. Staff Rate 200 100 100 200 200 100 100 100 Amount 12,000 3.600 6.000 12,000 1.000 .6,000 .2,400 1,200 Trips to Site by Jr. Staff No. 120 120 120 120 20 120 24 6 Rate 100 200 100 200 50 100 100 100 Amount 12,000 24,000 12,000 24,000 1,0OO 12,000 2,400 600 Permanent Field Staff Lxpenees No.Han Mo. 60 60 60 120 60 48 36 Rate 100 100 100 50 100 100 100 Amount 6,000 6,000 6,000 6,000 6,000 4,800 3,600 Field Quarters
No.Mo. 120 36 120 120 60 48 -
Rate 100 100 100 100 100 100 -
Amount 12,000 3,600 12,000 12,000 6,000 4,800 - Vehicle Rantal No.MH 60 36 60 120 60 24 12 Rate 500 500 200 100 300 200 500 Amount 30,000 18,00 12,000 12,000 18,000 4,800 6,000 Motorcytle Rental No.Mo 180 • 144 120 240 120 48 - Rate 100 iOu 100 50 100 100 - Amount 18,000 14,400 12.000 12,000 12,000 4,800 - Total Travel & Field Expenses 114,000 13,200 63,600 78,000 2,000 63,600 24,000 15,000
* Includes incountry travel of WMS and IMI Senior Staff directly involved in field research.
13 Table C-11. (continued) 3/3 III. Supplies & Expendables Study C;ode I II III IV V VI VII VIII
Statiotiery 4,000 4,000 3,000 1,000 1,000 1,000 500 500 Computer Supplies forms/diskettes 20,000 2,000 2.000 5,000 10,000 2,000 2,000 10,000
Co.-.jnications 2,000 200 200 100 1,000 100 100 100
Kimeograph/Photocopy 5,000 2,000 2,000 2,000 4,000 2,000 200 1.000
Printing 20,000 5,000 5,000 5,000 10,000 5,000 5,000 5,000
TotAl Supplies & Expendables 51,OO 13,20O 12,200 13,100 26,000 10,100 7,800 16,600
I Personnel& Benefits 126,000 75,600 102.000 129,600 21.600 64,800 43,200 25,200 II Travel & Field Expenses 114,000 73,200 63,600 78,000 2,000 63,600 24,000 15,000 III Supplies A Expendables 51,000 13,200 12,200 13,100 26,000 10.100 7,800 16,600 IV Equipment - - - - - 20,000 -
Total Categories I-IV 291,000 162,000 187,800 220,700 47.600 138,500 95,000 56,800
V Contingencies
20%of I-IV 58,800 32,400 37,560 44,140 9,520 27,700 19,000 11,360
Total Categories I-V 349,200 194,400 225,360 264,840 57,120 166,200 114,0JO 68,160
VI Overhead 102 of I-V 34,920 19,440 22,536 26,484 5,712 16,620 11,400 6,816
Grand Total 384,120 213,840 247,896 291,324 62,832 182.820 125,400 74,976
Rounded Off $385,000 215.000 250,000 300.000 65,000 185,000 130,000 75,000
14 ,/1.,' Table C-12. Summary of Expenditures by Year and Funding Source year I Year 2 T ea 3 er A - v 5 Total Lr. G I. Oper-ti C C L IA: & jnt.n ne 757.440 . . IC CjI 1.9:0:60 1,121.040 75.no i 1.59,30 1.181.040 Farerp, 21.000 1,144.360 1.075.0401 , OrgIn Ie.ltn, 19.80O IMo.OM 196.290. ISo Rf.8,140 195.0m; 872.74" 1q.o 1 0.0 211.980 19.900 14.qRS.2O0 0000 244.860. 19.800 30.000 F inAn - i l HIn. -g I , n t 195.240 19. 00 10.000 114.840 36, 00 0 36 0 .O o 1 18 77 0 3 6 .000 42 3.0 m 32 0 I.S42.2o0 Monitorini .g 36 .000 I M.o n 1 20 , 36 . OO 19. 0 0n 1 0 i A to.lhti. 7R.1IM 720.000 63.970. 3 . . O I nn.t on 12 n I. 620. n1o 78.300 60.000 1,520 78.300 Training 300.000 1.520 78.300 300.0O0 220.000 90.000 201. i.52n 7M.vu 10.00 1.570 M54 220.000 90 ,00 187.5m- 220.0o 2.610l.lo P .rrh/tStdjeA 90,000 120.000 220,000 90,000 120, Am 129.0wO 120.0X(I 170,000 90.(M I00.lj 57.500 211.700 12S,9 -" 69,500 211.700 2.229.Onn 129.000 25,000' 120,800 129.000 25.000 85.o0 1290 00 2S.,8W 1.59Y." shtnt.l 1.212.340 1.704.000 4.558,.00 1.688.840 1.794.000 1.930.180 1 .746.84to 90OO 1.736 .MO1,5 9.940 924,OOO 1.527.440 C-ntingetcy I) 1.255.140 924.0C0 1,144.&40 4.,654.900 121.234 170.4W0 455.8O81 168.884 179.4mO 193.018 174.684 9).903 171.606 154,994 92.400 152.744 125.574 9.400 114,o44 2,465.490 Inf Ition 2) 184.851 85.20O. 227. 253,326 89.700 46.509 262.026 46,950 86.MK3 232.491 46,20 76.372 1801.361 46.2w Ul 57.222 1.9M. 115 Total 1,540.425 1.959.60O.5,241,72 12.111.050 2.rC.3,oo 2,219.767 2,11,550 1.07.850 l169 1,937,425 1,062.600 iI,756.556 1.569.675 1.062.AM10 16.106 29,1o,5S5 An-n.I Ependitures 8.741.817 6.393.857 5.259.869 4,756,581 3.448,181
1) Contlngency Is estluated At 101. 2) TnflatIo Is evtlat d to be 152 for local currency and 52 for foreign currency. Table C-13. Schedule of Expenditures for Operations & Maintenance Component
Item Year 1 Year 2 Year 3 Year 4 Year 5 Total
Techr.ical Assistance District Computer Specialist ---Om0.0 60,000 Polonnaruwa Irrigation Engineer (half-time) 1._.,,2O2M1~.._222.. -L 22200.1- Systems Engineer ...--- 22a22I...... I...2222021 450,000 ( 3W ) ( 30 ) ( I5 ) ( 15.600G)1) ( 105,00 Gal Oya Irrigation Engineer (half-time) I --9 0 OG) ,j, 90.OOO-- = (- A20-X - -I---0 .OO... I.920.OOG) 450,000 Systems Engineer ( 15 G) ( 15d~G) C l5Q) 45,000 Design Engineer ( 9 90,000 cri GSL Personnel TA Level (27) ( 32,40OL 32,40LC) 32,40OLC ( 32,40OLC) _32,4OLQ WS Level 162,000 (27) 19,440LC)19 9,32440C)8Lc) _( 19440LC) ( 19,440LC) ( 19,44OLC) 97,200 Gal Oya LB- O&H Staffing (240,OOOLC) (240,00LC) 240,OOOLC)( _ 24,000LC0 ( 240,000LC) 1,200,000 Construction Haintenance C 417,60OLC) C 783,20OLC) ( 889,20OLC) ( 783,200LC) ( 574,800LC) ..... 3,448,000 1J .. 3+.8O-Q-L2_.. . ,L. j.2 .0 5,17,000 Operation Centers ( 48,0OOLC) ( 48,00OLC) 96,000 144,000
Commodities Construction Equipment 2,665,OOOL) Radio Communications 2,665,000 Equipment (_.202,00L) 202,000 Engineering Equipment __ 1.99,!00L.. Transportation 199,000 ( 357,7601.' 10,560L) 1 10,560L) .1 O,560L) (6019 . 400,000 ...... 49 2957400 235400 2g455400 1o 19 200 Sub total Grant G 225,000 O 375,000 G Sub total Loan 210,000 G 195,0OO G 195,000 G 1,200,000 L 3,920,160 L 1,459,360 L Sub total Currency 1,344,360 L 1,185,360 L 872,760 L 8,782,000 LC 757,440 LC 1,123,040 LC 1,181,040 LC 1,075,040 LC 866,640 LC5,003,200 Table C-14. Pragmatic Rehabilitation (PR),, Essential Structural Improvements (ESI), Priority Maintenance Needs (PMN) and Preventive Maintenance Program (PMP) by Year and Scheme
Item Maintenance Year 1 Year 2 Year 3 Year 4 Year 5 Total
Gal Oya Left Bank PMP 3,250 3,250 3,250 3,250 3,250 16,250 Gal Oya Right Bank PR 9,600 19,200 19200 19,200 12,800 Sub total 80.000 12,850 22,450 22,450 22,450 16,050 96,250 Parakrama ESI, PMN 4,800 9,600 12,000 9,600 7,200 43,200 Giritale ESI, PHN 1,5Q0 3,000 3,750 3,000 2,250 13,500 Minneriya ESI, PMN 4,410 8,820 11,025 8,820 6,615 39,690 Kaudulla ESI, PMN 2,540 5,080 6,350 5,080 3,810 22,860 Sub total 13,250 26,500 33,125 26,500 19,875 119,250 ------Total (1,000's Rupees) 26,100 48,950 55,575 48,950 35,925 215,500 Total (1,000's Dollars) (1,044) (1,958) (2,223) (1,958) (1,437) (8,620) Table C-15. Schedule of Expenditures for Farmers' Organizatons Component
Item Year 1 Year 2 Year 3 Year 4 Year 5 Total
Expatriate Farm Organization Specialist (180IOODG) (180,OOG) _ 30,000 ( 30,OOOCG ( 30,OOOG) . 450,000 GSL Personnel National DD Farmers Organizations (1) M( 3,60OLC) ( 3,60OLC) ( 3,60OLC) .(3,600LC) 3 1 600LC 18,000 Monitoring Officer (1) ( 1,80OLC) ( 1,80OLC) ( 1,80OLC) ( 1,8OOLC) ( 1,800LC) 9,000 Recruitment Officer (1) - -(i,80LC) ( 1,80OLcQ ,8L 1,8001.0 1OOLQ 9,000 Secretary (1) l,26L) C1,200LC) (1,200LC) (1,20OLC) (1,200LC) 6,000 Driver (1) ( 600LC) ( 60OLC) ( 60OLC) 60OLC) ( 60OLC) 3,000 Proj ect Field Supervisors (9) (1O,80OLC) (l0,800LC) (1O,800LC) (1O,800LC) (10,800LC) 54,000 Institutional Organizers _= 1st year (132+20) (136,8OOL) 136,800 0o 2nd year (199+20) (197,10OL) 197,100 3rd year (243+20) (236,700L) 236,700 4th yuar (188+20) .(187200L) 187,200 5th year (136+20) (1400,41.) 140,400 Commodities Jeep (1) = _(. OOL) I0,000 Spare Parts 4o)4 1. 440L) ( 400L) ( 440L).. ( -40L.) 2,200 Motorcycles (9) ... ( OL) 10,800 Bicycles (300) (18,240L) (1Ot.440L) . 3,720L) (3,60L) 36,000 Typewriters (4) ( 6,0OOL 6,000 Office Furaiture (10,OOOL) 10,000 Misc Supplies 1 ( CO 4.000L) ( ( 4.00LT.)4..O0L) ( 4,000L) 20.000 Total 396,080 411,780 294,660 245,040 194,640 1,542,200 Subtotal Grant G 180,000 G .180,000 C 30,000 C 30,000 G 30,000 450,000 Subtotal Loan L 196,280 L 211,980 L 244,860 L 195,240 L 144,840 993,200 Subtotal Local Currency LC 19,800 LC 19,800 LC 19,800 LC 19,800 LC 19,800 99,000 Table C-16. Schedule of Expenditures for Financial Management Component
Item Year 1 Year 2 Year 3 Year 4 Year 5 Total
Technical Assistance Project/Financial Management Specialist (180,O0OG) (180,OOOG) _180,OOOG) (180,OOOG) (180,000G) 900,000 Computer Specialist .= LS6O000G 60,000 Ag.Econ/Financial Manager (2 part-time) (180,OOOG) (180,0OOG) 360,000
GSL Personnel National DD Financial Management () ( 3,60OLC) ( 3,60OLC) ( 3,60OLC) ( 3,60OLC) ( 3160OLC)- 18,000
Financial Officers (9) (16,'200L'c) ( 16,200LC) " 16,20OLC) ( 16,2OLC) (16,2bOLC) 81,000 Secretary (1) (1,20OLC) ( 1,20OLC) ( 1,20OLC) ( 1,20OLC) ( 1,20OLC) 6,000 Driver (1) ( 660'0LC) 60(LC) 606U)-C( 600LC) ( 600L) 3,000 ko District Financial Officers (3) ( 3,60OLC) ( 3,60OLC) __( 3,60OLC) ( 3,60OLC) ( 3,60OLC) 18,000 Proj ect Financial Officers (9) ( 10,80OLC) ( 10,80OLC) (10,80OLC) (0,806LC) (10,80OLC) 54,000 Commodities Jeep (1) (000.. 10,000 Spare Parts ( 320L) ( 320L) ( 320L) ( 320L) 320L) 1,600 Typewriters (2) (3,0O0L 3,000 Micro-Computer (7) (98,000L) 98,000 Air-Conditioners (2) (2,406L)- 2,400 Office Furniture C 5,O0L) 5,000 rotal 514,720 456,320 216,320 216,320 216,320 1,620,000 ...... ------..-. =-- Subtotal Grant G 360,000 G 420,000 G 180,000 G 180,000 G 180,000 1,320,000 Subtotal Loan L 118,720 L 320 L 320 L 320 L 320 120,000 Subtotal Local Currency LC 36,000 LC 36,000 LC 36,000 LC 36,000 LC 36,000 180,00
Z, Table C-17. Schedule of Expenditures for Monitoring, Evaluation, Feedback Component
Item Tear I Year 2 Year 3 Tear 4 Year 5 Total Technicdl Assistance ComputerNational Specialist SA0M2 60,000 Polonnaruwa l~rgaionEniner j=9=o,=_o __:J- _L . -rrigationEngineer ~ 9~oc = gO=...... -...-=,,=,A2&g~L450.=O122M51 ...... =190,00°°3) oo Ag.Econ./Financiallg'. (=,===090.I...... (30,000() (30,OOOG) (30,000r) Agronomist 270,000 (180,0000) ( 90,000 ) ( 15,000G) (15,OOOG) (15.0OOG) (15,0000) (15,OOOG) (15,OOO0) 360,000 Gal Oya Irrigation Engineer ( 90,000G) ( 90,000c) ( 90,OOO ) (90,OOOG) (90,000G) Ag.Econ./Financial 450,000 Hgr. ( 90,000G) ( 90,0000) (30,OOOG) (30,000G) (30.OOO ) Agronomist 270,000 (180,OOOG) ( 90,000G) ( 15,000G) (15,OOOG) (15,0000) (15,000G) (15,000G) (15.0OOG) 360,000 GSL Personnel National DD Monitoring & Evaluation ( 3,60oL, ( 3,60OLC) ( 3,60OLC) ( 3,60OLC) (3,6001C) 18,000 Monitoring Officer (3) ( 5,40OLC 5,40OLC ( "5,40OLC) ( 5,4010) ( 5,40OLC) 27,000 Secretary (1) ( 1,20OLC) ( 1,20OLC) ( 1,20OLC) ( 1.2001,C) ( 1,20010 Driver (1) 6.00 ( 60OLC) ( 60OLC) ( 60OL) ( 60OLC) ( 60OLC) 3,000 P.ionnaruwa District Irrigation Engineer ( 1,800LC) (1,8OOLC) ( 1,801LC) (_.,800Lo) .... 1,9001.,C) Sociologist/Economist 9,000 ( 1,8OOLC) ( 1,81OOL) ( 1,800LC) (1,80LC) .(1,8OOL) 9,000 Agronomist ( 1,8 ) 1,8.OOLC) ( 1,8.OOLC) (1,8OLC) 1,81OOLC) 9.000 Cal 07a Irrigation Engineer ( 1.8OOLC) ( 180OLC) ( 1,8OOLC) ( 1.8OLC) Sociologist/Economist ( 1.800C) 9,000 ( 1,800LC) ( I,800LC) ( 1,800LC) ( 1,800LC) ( 1,80020) Agronomist 9,000 ( 0(LC)S1. ( 1,80OLC) ( i,8OOLC) ( 1,80OLC) ( 1,8OOLC) 9,000 Project Level TXIngtneie- (9) ( 0,800LC) ( IO .C) -- ( 10,BOOOL) (10,80oLC) (IO,8WLC) TA Economists (9) 54,000 ( 10,80OLC) ( 10,80OL) ( 10,80OLC) (10,800LC) TA Agronomists (9) ( 10,80OLC) (IO,8OOLC) 54.000 ( 10,80OLC) ( IO8OO1LC) (10,800LC) Field Assistants (27) ( 24,3001C) (0.80OLC) 54.000 ( 24,30OLC) ( 24,30OLC) (24,30O0C) (24,30OLC) 121,500 Comodi ties Motorcycles (27) ( 32.4001.) Jeeps (2) ( 20,0001.) 32,400 Spare Parts ( 1,520L) ( 1,520L) ( 1,5201.) (1,520L) 20,000 (1,520L) 7,600 Office Furniture 10,0001.) 10,000 Supplies Total 862.220 679,820 379.20 379.820 379,820 Subtotal Grant 2,681,500 G 720,000 G 600,000 300,000 G 300,000 Subtotal Loan L G 300,000 2,220,000 63,920 L 1,520 L 1,520 L 1,520 Subtotal Local Currency L 1,520 70,000 LC 78.300 WC 73,300 LC 78,300 LC 78.300 LC 78,300 391.500 Table C-10. Schedule of Expenditures for Training Component
Item Year I Year 2 Year 3 Year 4 Year 5 Total GITI
Training Specialist ( 45 ) ( 45.,OO) ( 45 tO) ( 45G.__) ( 45 ) 225,000 Overseas Training ( 50,OOOL) ( 50,OOOL) ( 50,OOOL) ( 50,OOOL) ( 50,OOOL) 250,000 In-House Training Irrigation Engineers TA 50,OOOLC) ( ( 50.OOOLC) ( 50,OOOLC) ( 50,OOOLC) 250,000
Equipment (28.500L) ( 28,OOOL) 57,000 SLIDA In-House Training Financial Hanagement (_5OOOOLC) ( ! ) ( 50, OLC) ( 50OOOLC) (50,OOOLC) 250,000 Study Tours (1O.OOOL) ( 10.OOOL) ( 10,OOOL) ( 10.000L) 40.000 Equipment (10,5OOL) ( I0,50OL) 21,000
ARTI In-House Training Institutional Organizers 50,OOOLC) ( 50 C) ( 50,ODOLC) (50 OOOLC) 200,000 Study Tours (l aL) (100L) ( It OL) (10,OOOL) 40,000 Equipment 3,5001) ( 3,5OL) 7,000
PASE Training Specialist 45,0OO) ( ( 450 ) ( 45,0OOG) ( 45,0000) (45,000) 225,000 Overseas Training (50,OOOL) ( 50,OOOL) ( 50,OOOL) ( 50,OOOL) (50,O.OOL) 250,000 In-House Training -- ProjccL Management 50,OOOLC) (50,OOOLC) (50,0OLC) ( 50,OOOLC) (50,OOOLC) 250,000 Equipment . 25,0OOL) (25,0OOL) 50,000 University of Moratuwa _2--, In-House Training (IO,OOOLC) (I0,00OLC) (I0,GOOLC) ( lOOOOLC) (I0,OOOLC) 50,000
University of Peradeniya In-House Training o ,OOOLC_ 10O3OI.) (l1tOl) ( IOOOOLC) ( l0,OOOLC) 50,000 Equipment - 14,OOOL) 14,000 Total 511,500 497,500 430,000 430,000 360,000 2,229,000 ------...... ------.------Subtotal Grant G 90,000 G 90,000 90,000 Subtotal Loan L 201,500 C G 90,,000 450,00 L 187,500 L 120,000 L 120,000 L 100,000 729,000 Subtotal Local Currency LC220,000 LC220,000 LC220,000 LC220,000 LC170,000 1,050,000 Table C-19. Schedule of Expenditures for Research/Studies Component
Item Year 1 Year 2 Year 3 Year 4 Year 5 Total 0 & H Fee Incentives (777,0000) 7 7,0000) ( 77,OOOG) 77,000G) Farmers' 385,000 Organization Alternative ( 35,800L C) 71,70OLC) (C71,70OLC) C 35,800LC) Levels of Irrigation, 215,00 Hardware vs Software ( 25,OLOOLC) ( 25,OOOLC) C 2-5,OO1C) (25,OOLC) ( 25,0OLC) ( 25,OOOL) (25,-OOL) (25,0OOL) . 25,0OOL). . (_25,0OOL) Study of Farmer Managed Tanks 250,000 (60,OOOLC) (60,OOOLC) (60,OOOL) 60 60,OOOL) 300,000 Water Management in Sri Lanka C 32,50OL) 32,5001.) Intensity of Management 65,000 (37,000G) (37,OOOG) ( 37,00G) C37,OOOG) (37,000G) 185,000 Losses in Irrigation Systems ( 12,OOOL) C55,OOOLC) (55,OOOLC) Development of Daily Operational Model 122,000 ( 15,OOOG)_ ,- . 15,0000) C 15,00G) C15,0OOG) ( 15,0OOG) 75,000 Total 307,300 410,200 365,700 274,800 239,000 1,597,000 = ....= ...... ------Subtotal Grant ------ G 129,000 G 129,000 G 129,000 G 129,000 G 129,000 645;000 Subtotal Loan L 57,500 L 69,500 L 25,000 L 25,000 L 25,000 202,000 Subtotal Local Currency LC!20,800 LC211,700 LC211,700 LC120,800 LC 85,000 750,000 Table C-20. Summary of Project Costs by Component for each Project Site
Component Gal Oya Irr. Proj. Polonna- JendiRidi Hakwa-tuna Total Li RB ruwa . a Oya Oper. & Maint. Tech.Assist. 60 525 570 30 15 1,200 GSL Salaries 857.6 457.6 86.4 28.8 28.8 1,459.2 Construction 666 3,208 4,986 8,860 Commodities 219 120.5 3,126.5 3,466 Subtotals 1,802.6 4,311.1 8,768.9 58.8 43.8 14,985.2
Fa-mers Org. Tech.Assist. 170 85 170 15 10 450 GSL Salaries 369 201.6 369 28.8 28.8 997.2 Commodities 35.3 19 35.3 2.7 2.7 95 Subtotals 574.3 305.6 574.3 46.5 41.5 1,542.2 Financial Mgt. Tech.Assist. 500 245 500 40 35 1,320 GSL Salaries 70 35 70 5 180 Commodities 12.4 9.7 61.9 18 18 120 Subtotals 582.4 289.7 631.9 63 53 1,620
Mon. ,Eval., & F. Tech.Assist. 720 360 1,080 30 30 2,220 GSL Salaries 101 50.5 173 33.5 33.5 391.5 Cr..midities 21.1 11.5 28.3 4.7 4.4 70 Subtotals 84 .I 422 1,281.3 68.2 67.9 2,681.5 Training Tech.Asst. 170 85 170 13 12 450 GSL Salaries 390 210 390 30 30 1,050 Overseas 220 110 220 15 15 580 Commodities 56 28 56 4.5 4.5 149 Subtotals 836 433 836 62.5 62.5 2,229
Research Commodities 4 2 6 12 Other 600 300 600 45 40 1,585 Subtotals 604 302 606 45 40 1,597 ... .N.nn...... SUBTOTALS 5,241.4 6,063.4 12,698.4 344 307.7 24,654.9 Contingencies 524.1 606.3 1,269.9 34.4 30.8 2,465.5 Inflation 421.7 487.3 1 018.7 27.6 24.8 1298.
TOTALS 6,187.2 7,157.0 14,987.0 406.0 363.3 29,100.5
23 Table C-21. Summary of Project Costs by Year for the Polonnaruva District Tanks (4) Site/Item Year 1 Year 2 Year 3 Year 4 Year 5 Total Tech. Assistance - OH 120 135 105 105 105 570 FO 70 70 10 10 10 170 FM 170 170 65 65 65 500 HEF 354 294 144 144 144 1,080 TCE 34 34 34 34 34 170 RES 7Subtotals 713 703 358 358 358 2,490 GSL Salaries - OM 17.3 17.3 17.3 17.3 17.2 86.4 FO 57.2 81.4 97.1 77.4 55.9 369 FM 14 14 14 14 14 70 HEF 34.6 34.6 34.6 34.6 34.6 173 TCE 80 80 80 80 70 390 RES Subtotals 203.1 227.3 243 223.3 191.7 1,088.4 Construction 638 1,168 1,325 1,060 795 4,986 Commodities - OH 2,993.06 119.76 4.56 4.56 4.56 3,126.5 FO 21.9 5.8 3 3 1.6 35.3 FM 61.5 0.1 0.1 0.1 0.1 61.9 MEF 25.9 0.6 0.6 0.6 0.6 28.3 TCE 32 24 56 RES 6 6 Subtotals 3,134.36 156.26 8.26 8.26 6.86 3,314 Overseas Training 45 45 45 45 40 220 Research 120 160 140 100 80 600 Contingency 485.3 246.0 211.9 179.5 147.2 1,269.9 Total 5,338.76 2,705.56 2,331.16 1,974.06 1,618.76 13,968.3 Table C-22. Summary of Project Costs by Year for the Gal Oya Right bonk Canal System
Site/Item Year 1 Year 2 Year 3 Year 4 Year 5 Total
Tech. Assistance - OH 90 180 85 85 85 525 FO 35 35 5 5 5 85 FM 80 60 35 35 35 245 MEF 118 98 48 48 48 360 TCE 17 17 17 17 85 RES Subtotals 340 390 190 190 190 1,300 GSL Salaries - OH 91.5 91.5 91.5 91.5 91.6 457.6 FO 31.2 43.2 51.1 41.2 34.9 201.6 FH 7 7 7 7 7 35 MEF 10.1 10.1 10.1 10.1 10.1 50.5 TCE 45 45 45 L5 30 210 RES Subtotals 184.8 196.8 204.7 194.8 173.6 954.7 Construction 388 772 768 768 512 3,208
Commodities - CM 83.7 30.8 2 2 2 120.5 FO 12 3 1.6 1.6 0.8 19 FM 9.3 0.1 0.1 0.1 0.1 9.7 MEF 10.3 0.3 0.3 0.3 0.3 11.5 TCE 16 12 28 RES 2 2 Subtotals 131.3 48.2 4 4 3.2 190.7 Overseas Training 25 25 25 20 15 110 Research 60 80 70 50 40 300 Contingency 112.9 151.2 126.2 122.7 93.3 606.3
Total 1,242.0 1,663.2 1,387.9 1,349.5 1,027.1 6,669.7 Table C-23. Summary of Project Costs by Year for the Gal Oya Left Bank Canal System
Site/Item Year I Year 2 Year 3 Year 4 YearYeer 5 Total r 2Toeari Tech.Assistance - OH Y I 15 30 15 FO 60 70 70 10 10 10 170 FM 135 170 65 65 65 500 HEF 236 196 96 96 96 720 TCE 34 34 34 34 34 170 RES "Slbtotals 490 500 220 205 205 1,620 GSL Salaries - 04 171.5 171.5 171.5 171.5 171.6 857.6 FO 57.2 81.4 97.1 77.4 55.9 369 FM 14 14 14 14 14 HEF 70 20.2 20.2 20.2 20.2 20.2 101 TCE 80 80 80 80 70 390 RES Subtotals 342.9 367.1 382.8 363.1 Construction 331.7 1,787.6 138 138 130 13C 130 666 Commodities - OH 145 62 4 4 4 219 FO 21.9 5.8 3 3 1.6 35.3 FM 12 0.1 0.1 0.1 0.1 HEF 12.4 19.1 0.5 0.5 0.5 0.5 21.1 TCE 32 24 56 RES 4 Subtotals 4 230 96.4 7.6 7.6 6.2 347.8 Overseas Training 45 45 45 45 40 220 Research 120 160 140 100 80 600
Contingency 136.6 130.7 92.5 85.1 79.2 524.1 Total 1,502.5 1,437.2 1,017.9 935.8 872.1 5,765.5 ANNEX D: REPRESENTATIVE FARM BUDGET AND PRODUCTION INPUTS
Information in Annex D provides the support for the private profitability analysis of individual farm operations in section III. Table D-1 shows the detailed estimated cost flow of a representative three-acre farm. Costs of production are estimated for yields expected with and without the ISM Project. The difference in gross value of production, net returns to management and water, and net returns to water and family labor are listed for both situations. The table clearly demonstrates that a typical farmer raising paddy on a three-acre farm has the capacity to pay Rs. 200 per acre for O&M fees with or without the ISM Project. This capacity increases at a much faster rate with the Project, which means farmers can achieve higher living standards as well as have more capacity to finance O&M of the irrigation system.
Table D-2 provides the detailed quantities of inputs, unit prices, and total production costs required to farm one ac-e of paddy. This information is incorporated into the costs of production portion of Table D-1.
1 Table D-1. Representative Farm Budget for Three-Acre Farm (1984 Base prices in Rs.)
Item Year 1 Year 5 Year 10 Year 15 Year 20 Costs of Production 1) Land Preparation 3,600 3,975 4,388 4,845 5,349 Crop Establishment 3,048 3,365 3,715 4,102 4,529 Fertilizer 2,982 3,292 3,635 4,013 4,431 Crop Protection 2,376 2,623 2,896 3,198 3,531 Harvesting 5,670 6,260 6,912 7,631 8,425 Taxes/Rents 7,518 8,300 9,164 10,118 11,171 Interest 588 649 717 791 874 Total Cost 25,782 28,464 31,427 34,698 38,310 - Yield Without ISM Project 2) 154 bu. 160 bu. 168 bu. 174 bu. 177 bu. With ISM Project 154 bu. 178 bu. 205 bu. 228 bu. 252 bu. Gross Value of Production Without ISM Project 28,874 33,125 38,400 43,911 49,314 With ISM Project 28,874 36,851 46,857 57,538 70,210 Net Returns to Management and Water Without ISM Project 3,092 4,661 6,973 9,213 11,004 With ISM Project 3,092 8,387 15,430 22,840 31,900 Net Returns to Water and Family Labor 3) Without ISM Project 5,665 7,502 10,:09 12,676 14,827 With ISM Project 5,665 11,228 18,566 26,303 35,723
1) Excludes water fees. 2) Financial price per bushel is Rs.62.50 which is eacalated at 2% per year. 3) Family labor totals approximately 24.5 M.D. per acre and is valued at Rs.35/M.D. The cost per M.D. is escalated at the rate of 2% per year.
2
J/ Table D-2. Representative Production Costs for Paddy Rice, 1984
Item Unit Quantity Price/Unit Total
(Rs) (Rs) Land Preparation Buffalo & Driver Day 6 100 600 Crop Establishment Seed bu. 2.5 85 213 Broadcasting Seed M.D. 4.0(F) 35 140 Fertilizer Application M.D. 1.0(F) 35 35 4grochemical Application M.D. 2.0 60 120 Fertilizer Basal 4-30-12 lbs 165 1.41 233 Urea lbs 80 1.37 110 TDM lbs 110 1.41 154 Crop Protection Insecticides BHC 10% dust lbs 20 4.25 85 Carbofuram lbs 15 13.64 205 Dimethoate 40% EC 1 0.2 150.00 30 Herbicides MCPA 60% 1 0.6 126.60 76 Harvesting Cutting M.D. 15(50%F) 35 525 Threshing M.D. 5(F) .35 175 Winnowing M.D. 4(F) 35 140 Transporting M.D. 3(F) 35 105 Interest on Variable Costs (2946 @10% for 4 months) 98 Total Variable Costs 3,044 Land Rent acre 1.0 1,250 1,250 Land Tax acre 1.0 3.0 3
Total Costs 4,297
3 ANNEX E: ACTION PLAN FOR TRAINING DEVELOPMENT AND IMPROVEMENT
Alan C. Early 1
Irrigation managament training activities are an important component of most major irrigation improvement projects. Training is one of the key methods of
1) changing attitudes and behavior,
2) expanding experience and exposure to enable knowledge and understanding the performance of the irrigation system and,
3) acquiring new technical, institutional and management skills to meet the changing perceptions of irrigation management.
This paper will introduce the concept of the training develop ment cycle, suggest methods of integration of management and par ticipatory principles in training, review available training materials, and suggest activities in support of experiential training.
I. THE TRAINING DEVELOPMENT CYCLE
This section outlines a suggested action plan for the develop ment and improvement of curricula, training materials and visual aids in support of the Irrigation System Management Project (ISMP). The action plan closely follows the training development cycle depicted in Figure E-1. The concept of a process as a cycle is predicated on the periodic review and the repeated iteration over a number of steps to result in cumulative improvement over time. The nine-step process is suggested as an action agenda for the training institutes in MLLD and other ministries in support of ISMP.
A. Job Descriptions and Performance Standards
Step 1. Review the current state of expected and actual job performance. The first step in the training development process is the review of current Job descriptions and performance standards. Current conditions of administrative procedure apparently do not
1 Associate Professor, Agricultural and Chemical Engineering Department, Colorado State University, Fort Collins, Colorado 80523.
1 TRAINING DEVELOPMENT CYCLE
1)REVIEW JOB DESCRIPTIONS ~ PERFORMANCE STANDARDS 9)FOLLOW-UP TRAINEES ON-THE-JOB 2)REVISE JOB DESCRIPTIONS & / PERFORMANC 8)CONDUCT TRAINING STANDARDS EVALUATE TRAINING
7) DEV"LOP MATERIALS 3) CONDUCT KNOWLEDGE WITH PAIRWISE INVENTORY AND DISCIPLIfNARY PERFORMANCE CONSULTATIONS EVALUATIONS
6)DEVELOP FRAMEWORK, METHODS 4)ASSESS PRIORITY SYLLABUS & LESSON NEEDS & SET BEHAVIORAL PLANS OBJECTIVES
5) ASSEMBLE MULTIDISCIPLINARY TEAM FOR TRAINING & DEVELOPMENT
Figure E-1
2
// provide for specific or concise Job descriptions for individual posi tions in the hierarchy of the Irrigation Department. A review of the Government of Sri Lanka administrative manuals indicates very general Job descriptions for the positions from irrigation engineer down to work supervisor, mostly emphasizing limits of power and area of responsibility rather than specific duties and responsibilities that would constitute a normal job specification. As a first step in training development, the training development team needs to review and assess the current job requirements from the point of view of the supervisor of next higher rank and the view of the person himself. These two categories are the key Informants for the job position under scrutiny. Careful delineation of Job specification need only consider the particular functions to be performed under the action program being implemented in the field for which the specific training institution (STI) is providing training. The other responsibilities related to more mundane matters of management and personnel administration need not be fully specified at the Initial stage of development. This specification of the Job requirement by each of the hierarchial positions in the particular branch to which the individual is assigned, whether in land development, construction, operation and maintenance, planning, monitoring, investigation or design will have to be taken into account, as shown in Figure 2. The figure depicts schematically the relative proportions of trainees involved in irriga tion water management who will ultimately become clients of the STI's. Each project will have a different mix of individuals to be trained based on their function in the overall program.
Having a job description is like having a road map and des tination before starting a journey. Once a destination is established, then the selection of the steps required to move to the terminus becomes a straightforward matter. On the other hand, "If you don't know the destination, you are certainly likely to reach there." Along with the Job description go performance standards and methods, plus rewards and sanctions. If they are to be evaluated with rewards and sanctions for performance or non-performance then they are not likely to accomplish much of use to the program or assignment.
Step 2. Revise job descriptions and porformance standards. Once the informition is available on the state of the job description and current performance of people on the job is known, then a cross section of key informants can be consulted to review the job descrip tions in the ight of current practice and the needs of new action programs in irrigation water management. This consultative process should include persons in the job under review as well as supervisors of this position. This participation allows the current holders of the job to relate the current realities of the work required as well as those views and expectations from a supervisor's viewpoint. The supervisor has a concern for
3
IV WATER AND LAND MANAGEMENT TRAINING PERSPECTIVE
DEVELOPMENT
PLANNING, MONITORING, CONSTUCTIO INVESTIGATING
DESIGN OPERAT ION
MAINTENANCE
Figure E-2
4 program implementation and the advantage of having been in that posi tion previously and through promotion from the ranks.
The objective of training can be to impart a detailed knowledge, an awareness of a general nature, and specific practical skills to be used on the job; to cause an attitudinal change that affects job performance and program implementation; and to ciuse behavioral changes for the benefit of the implementation program. The resultant outcomes of this participatory, reonsultative process among the training development team, the supervisors and the representative of the client-trainee group are three-fold: 1) A sharper, more closely focused job description for the position and a carefully defined matrix. (What the clients need to know, what they need to be aware of in general, what they need to be able to practice in the field, what attitudinal changes they need to undergo, whaL behavioral changes they need to experience on the job.) A general sample matrix is shown in Figure 3. Please note that the topics are not crop science, soil science, engineering, sociology, and economics. The topics are real world problems without the artificial boundaries imposed by academic training. Night irrigation behavior is a common ground for the engineer as well as the sociologist and should be considered, designed and delivered by these two as a team. The same is true with each of the other topics chosen. Each should be delivered by a team. Likewise, the information needed on each of the topics will vary according to the client and to the position in the organization that he is filling. If he is a irrigation engineer, he may need to know about night irrigation behavior if he works in opera tions and maintenance (O&M) but may not need to know about these if he works in construction or design. This matrix of best estimates is precisely that, best estimates of the combined experience of the development team, the supervisors, and the representatives of the client-trainee group. The best estimates will undoubtedly improve with repetition of the process as time goes on.
2) The mpementation of a participatory-management process 1-n the organIztion. When individuals are given a say in the job that they are to perform, as well as in the design of the training that will make them more effective in performing their job, the program benefits.
3) The provision of an opportunity for the development of objective performance standards and procedures for the evaluations that are to be applied gntheJobj. With performance standards, tools for evaluation, annual evaluations and rewards and sanctions for performance or lack of performance, and feedback to the employee, then the picture for more reliable personnel management is complete.
5 MATRIX OF BEST ESTIMATES OF "WHAT DO THE CLIENTS NEED TO KNOW?"
CLIENT CATEGORY/POSITION ENGINEER
0D M CONST, DESIGN
NIGHT IRRIGATION X X EHAVIOR ROTATIONAL WATER X SUPPLY IRRIGATION SCHEDULING X LAmID LEVEL-ING X X X WATERCOURSE X X X IMPROVEMENT FARMER PARTICIPATION X X MAIN SYSTEM X MANAGEMENT
Figure E-3
6 B. Knowledge and Practice Inventory and Assessment of Critical Needs
Step 3. Knowledge and skills inventory. Once the needs are determined, then the current state of detailed knowledge, general awareness, skills practiced, actual attitudes and job behavior are inventoried. This is accomplished primarily through interviews, questionnaires and observation of the individuals on the job. The development of these instruments and the recording of performance are steps that require careful consideration for content and format. The specific detailed knowledge, general awareness, and actual skills that can be performed on the job are directly approached with questions. The determination of attitudes, however, must be carefully accomplished to be comparable from place to place and program to program. The recording of behavior on the job is often obstructed by the presence of observers. The attitudes that are held and the behavior that results are difficult matters to ascertain. One approach is to answer the following questions: What do the clients currently have in detailed knowledge about some topic to be covered by the training? What matters are they currently generally aware of? What are the skills that they practice on the job and how well do they perform those skills? What are their key attitudes as they affect job performance? What are the important behavior patterns as they affect job performance?
Step 4. Assessment of priority needs. The needs of training become the difference between the Job specification of what they need to know and their practice. Also there is a need to ascertain key attitudes and behavior on the job to determine what they need to know, practice, and feel about on the job. This is compared with where they are now In terms of skills, behaviors, and attitudes. This is expressed as a simple equation in Figure E-4. What they need to know and to be able to practice minus what they already know and are able to practice equals the appropriate behavioral objectives for training. In the early stages, the needs may far exceed the ability of the training program to respond. In this case, the needs that are assessed in this process will have to be prioritized. Those items that are most important to the accomplishment of program objectives will be taken as the priority program needs for early inclusion in the training. Setting priorities on the objectives further indicates that the training is recursive (i.e., repeated periodically or occasionally).
The form of objective that states what the client-trainee will be able to accomplish at the end of the course is known as a behavioralQLbective... It is represented as for example:
7 EQUATION DEFINING BEHAVIORAL OBJECTIVES
1) JOB DESCRIPTION = WHAT THEY NEED TO KNOW SPECIFICATION AND TO BE ABLE TO PRACTICE
MINUS
2) KNOWLEDGE AND SKILLS = WHAT THEY KNOW AND ARE INVENTORY ABLE TO PRACTICE
EQUALS
3) PRIORITY NEEDS = BEHAVIORAL TRAINING ASSESSMENT OBJECTIVES
Figure E-4
8
I. "At the end of this course the trainee will be able to:
- display his knowledge (by passing an examination)
- cite his awareness (verbal examination)
- practice certain specific skills (demonstrate in practical exam)
- indicate newly acquired attitudes (analytical interview)
- perform in certain behavior patterns (followed up on the job)."
These general behavioral objectives become the starting point for specific objectives in the lesson planning activity later in the process.
C. Development of Training Course
The next series of three steps constitutes the development of a course to meet specific needs. These steps are the assembly of a training staff with backgrounds and specializations consistent with and according to the priority needs, the development of the training framework, process and syllabus and lesson plans, and the development of materials, field exercises with paired consultations among relevant disciplinary trainers.
Step 5. Assemble multidisciplinary team of trainers. The priority needs of training will indicate the key trainer disciplines required to conduct the course. Often the emphasis will be on the more technical disciplines of engineering, soils, and agronomy because of the nature of the field problems and the bias of the persons con ducting the skills inventory and the needs assessment. In almost all cases the role of the sociologist, the communicator and the extension educator will be overlooked. This is die to insensitivity to the questions of human behavior and motivations as well as the principles of management which are required by the officers who are implementing the program. Thus the assambly of the trainer team for course development and delivery and ultimately evaluation must, by necessity# be broad. Exclusion of one of the key disciplines would be more the exception than the rule. This is particularly true when one of the additional requirements of the program implementation agency is monitoring and evaluation.
Training is an art that requires the accumulation of certain skills over time. Likewise the development of relationshir. between trainers of the multidisciplinary team must grow with time and evolve as a result of shared experiences. Team behavior must be predictable for the team to act successfully in concert. Considerable effort is required on the part of trainers to seek the common ground on which interdisciplinary team teaching can be successfully performed.
9 Trainers build these relationships over time by reaching a mutual understanding in the training as well as in the conduct of action research. These relationships require careful nurturing, give and take and considerable effort on the part of individuals to speak the language of the other discipline. This development of interdiscipli nary communication results in a common language among all the training disciplines and ultimately provides for improved understanding on the part of the client-trainees. A time should come when all of the program is offered in the common "irrigation water management language."
Step 6. Develop framework, metiods. syllabus and lesson plas. O,ce the trainers have been esscnbled and appraised of the priority training needs, then begin the process of developme't of the course in broad terms. This begins with the placement of the training within the framework of the state water and land management training activities with respect to the function of the client stratum: construction, design, operations and maintenance, land development, monitoring, planning and investigations. This would be likened to placement of the course in the perspective diagram of Figure 2. At this point, the framework for the training takes shape with the trans lation of the general needs into specific behavioral objectives. These specific behavioral objectives are given structure by the development of an outline of training content. When this general outline is made more detailed, it becomes the course syllabus. The course syllabus is then divided into packages or lessons that can be accomplished within a given period of time, perhaps half a day.
The traitning development team must now take the specific lesson titles and develop o;,ectives, materials list, site requirements, duration or ti;ie requirement, the output expected and other pertinent items into lesson plans. A simple example of a lesson plan for a field exercise on water measurement is shown in Figure 5. This simple structure and the discipline to accomplish it in every case for every lesson provides the training development team with a invaluable structured aid for the preparation of the training materials and for determining the training methods to be used in the following steps.
The objectives translated into lesson plans will provide indications of the methods that are most appropriate for the subject matter at hand. Clearly, if the experiential approach is to be used in the training, the client-trainees will be forced ti practice the newly acquired skills during the training to assure proficiency before the training is over. If the training is focused on design of irriga tion and land development, the trainees should get actual design experience. If the focus is farmer organization they should experience and practice organizing farmers. If the focus is irriga tion management they should practice operations and maintenance skills before leaving the course.
10 LESSON PLANNING EXAMPLE
TIILE: FIELD WATER MEASUREMENT
OBJECTIVES: AT THE END OF THIS LESSON THE TRAINEE WILL BE ABLE TO: 1) CITE SEVERAL PRACTICAL METHODS OF MEASURING IRRIGATION WATER 2) MEASURE WATER WITH AT LEAST 3 OF THE AVAILABLE DEVICES, INCLUDING INSTALLATION OF THE DEVICE, AND 3) COMPARE MEASUREMENT RESULTS, PRACTICAL DIFFICULTIES AND ADVANTAGES OF EACH METHOD USED.
MATERIALS: CALIBRATION CHARTS, ORIFICE PLATE, V-NOTCH WEIR, PARSHALL FLUME, CUTTHROAT FLUME, BROAD-CRESTED WEIR AND CORRESPONDING INSTRUCTIONS AND PRECAUTIONS,
SITE: FIELD CHANNEL WITH STEADY, UN IFORM FLOW.
DURATION: 3 HOURS.
OUTPUT: SIMPLE TABLE WITH REPLICATIONS, MEANS, VARIANCE AND COEFFICIENT OF VARIATION, DIFFICULTIES AND ADVANTAGES OF EACH METHOD USED,
Figure E-5
11
17 Step 7. Develop the training materials with paired consult ations. The lesson plans provide the detailed structure of the material that is to be prepared. The actual writing of the training materials should be done by individuals in consultation with other disciplinary members as the materials or subject matter requires. If ti e subject is a management topic to be handled by the management specialist on the team, then that specialist should develop those materials in paired consultation with the engineer, with the agronomist, with the soil scientist, with the extension specialist, with the rural sociologist, and with the agricultural economist on the team. This paired disciplinary consultation is showni in Figure 6. Thi same principle applies in reverse for all other members on the team so that a complete network of consultations might appear as in Figure 7. This process may seem cumbersome in the beginning. But with experience and realization that farmers problems or the problems in land development in the field are never as simple as may be handled by one discipline, the process of interdisciplinary consultations will become very natural behavior for the members of the training team.
At this stage the communication specialist is consulted for the development of training aids and devices for the enhancement of the understanding of the material by the clients. The old adage that "a picture is worth a thousand words" is very appropriate in this situation and the work of a communication specialist is essential for the success of the program. In these training programs many good slide sets, filmstrips, movies, and videos can play a useful role in making training interesting and useful.
Step 8. Training imDlementation. The real test of training development comes in the implementation of the training program. The course begins with a benchmark assessment of knowledge, skills, attitudes, and behavior. The program should attempt to schedule field work outside the classroom every day. This is to attempt to balance activity with inactivity. Attempts should be made to minimize theory with the major focus on practice. One must remember that the profes sionals in the course are not pursuing an advanced degree. They are seeking something useful to take back to their jobs that will make them more effective in completing their tasks. Periodic evaluation of the training should be done during the training period at least weekly. This allows the material to remain fresh in the minds of the trainees. Also the value of the material and quality of the presenta tions can readily be evaluated. Evaluation represents a two-edged sword. The course and the presentation of the topic by the trained facilitator should be evaluated, both by trainees (who are to remain anonymous to allow constructive criticism without fear of retribution) and by training staff peers. The trainees should be evaluated on verbal skills, on written knowledge assimilation, on practical skills performed and on attitudinal changes which have been to manifest themselves over time. At the end of the course, a general examination should be used to assess the ability of the trainee to relate all of
12 PAIRWISE DISCIPLINARY CONSULTATIONS
ENG INEERING
MANAGEMENT AAG RONIOMY
ECONOMICS EXTENSION
SOCIOLOGY
Figure E-6
ENGINEERING
MANAGEMENT o< AGRONOMY
ECONOMI CS UESO ' SOCIlOkGY
Figure E-7
13 the material into one package. This synthesis of the material Is a step that some of the trainees will not be able to accomplish.
Certificates should be graded according to several categories of performance, such as excellent, satisfactory, passed or gold medal, first division, second division, etc. This grading of the certifi cates provides additional incentives for the trainees to do well in the course because the course certificate and the report made to the supervisor will carry these marks and become a permanent part of the employee's personnel file.
Step 9. Follow-up trainees on the Job. Every trainer should have a list of the previous trainees and their current field assignment. Using this list they are able to follow-up on the alumni in their respective field positions while they are on ordinary field inspections and on their action research assignments. Follow-up should be systematic to the extent possible, so that at least a cer tain threshold percentage of past trainees are seen, observed and interviewed every year. A certain percentage of trainees should be invited back to campus each year for the anniversary celebrations, to participate in the ongoing dialogue on the training course content, and evaluation of the training methods used. The results of the evaluations then feed directly back into the training development process.
The entire training development cycle is then repeated each time that the course is offered. This results in a cumulative improvement of the course over time, with the Judicious incorporation of the results of the training evaluation and allowance for changing conditions in the field and policies of implementation and conditions of the ultimate client, the farmer. Several key questions about the training develuoment, the Implementation and the evaluation are listed in Appendix A. These questions can, when adaressed by the training development team, assist them in the evaluation of the overall course experience.
D. Annual Review and Planning Cycle
It is suggested that the STI's be encouraged to establish a regular procedure for the review of the past year and to look forward to plan for the coming year. This is much like the approach the WALMI of Maharashtra is currently using. Such a procedure is suggested in Figure E-8. Note it has six steps for an annual cycle.
First, is the review of the past year. Thii includes the courses, the evaluations of the trainersp the trainee evaluations and other pertinen- information. This is done with emphasis on improve ment and focus on correcting deficiencies immediately. Second, is the projection of the courses for the coming year according to the demands placed on the STI by the irrigation agency. Matching the demands with
14 STI-ANNUAL REVIEW-PLANNING CYCLE
REVIEW COURSES AND PERFORMANCE
ADJUST MATRICESj PROJECT REQUESTED LESSON PLANS, MATERIALS COURSES, AVAILABLE METHODS AND AIDS & REQUIRED RESOURCES
FOLLOW-UP CLIENT TRAINEES PLAN ANNUAL ON-THE-JOB PERFORMANCE & CALENDAR-ASSIGN CHANGING JOB REQUIREMENTS LEADERSHIP AND TRAINING OLES
CONDUCT COURSES & EVALUATE • TRAINING
TRAINERS * TRAINEES
Figure E-8
15 the available space, trainers, and money must be done at this time. Third# is the adoption of an annual training calendar and the assign ment of leadership roles for the courses. Emphasis in the calendar adoption must be given to quality of training rather than attempting to do too much. Fourth# is the annual conduct of training as it appears in he training development cycle presented earlier. The important part of the annual training cycle for the review process to be successful is the establishment of and implementation of objective evaluation of the trainees, trainers and the course content. Fifth* is the follow-up of the alumni on the job. This would also include bringing in key supervisors and professionals to be trained for the careful establishment of job description, performance standards, tools for evaluation and a system of rewards and sanctions for specified types of behavior on the job. Sixth, is to use the information pre viously collected to adjust t,',= natrices of what the clients need to know and to improve the behavioral objectives for the course, as well as the lesson plans, materials and the training aids. This step, then, is preparation for the annual review and planning session which continues the cycle.
As can be well appreciated, the early establishment of this type of self-correcting device can be invaluable to the STI's and will most likely require special consulting services for implementation in the beginning phases.
II. INTEGRATION OF MANAGEMENT AND PARTICIPATORY PRINCIPLES IN TRAINING
A. Management Principles
Managemnt principles are woven into the training through the introduction of the training-development cycle and the annual planning and review cycle. The training-development cycle emphasizes the development of job descriptions, performance evaluation standards, evaluation procedures and frequencies, and reward and sanction struc ture that are all widely known and commonly understood by the employee as well as the supervisor who is to do the evaluation. This careful definition and open evaluation procedure are part of modern systems of personnel management. They have been proven effective for efficient employee performance as well as satisfaction on the part of the employee in knowing where he stands and how he will be evaluated. Movement toward implementation of such a technique would take con siderable effort and time, but have considerable payoffs to irrigation improvement efforts in the long run.
Assembling an interdisciplinary team to tackle the problems surrounding the development of the training framework, syllabus, lesson plans, materials and visual aids with clearly defined leader ship are important management concepts of team building, role definition, and delegating responsibility. The rotation of the responsibility from year to year among staff will tend to build an
16
iA esprit de corps. As well, it is a means of identifying those individuals with natural leadership capabilities as they go through the leadership training role of -ourse leader of the training team.
Evaluation is an important management principle. This is because feedback is needed in the operation of any system for updated information to be used for improving the performance of the system over time. The extension of the evaluation to the actual field situa tion for the alumni tenis also to let the field people know in general that their performance in the organization is important and that their views will make a difference.
The concept of an annual review is an important management tool for reflecting on the past accomplishments as a basis for plan ning future activities. The concept of iteration which takes place in the training development cycle and the annual review and planning cycle are manifestations of the management concepts of evaluation, feedback and improvement. There will be important opportunities for the ISM Project to support management improvement in the STI's over the duration of the project. This can be accomplished through the use of structured, comparative international irrigation courses and the use of consultants to assist the STI's through the annual review and planning process. A special directors' training course might ultimately be appropriately established at one of the Sri Lanka's Institute of Management campuses.
B. Participation Principles
Participation principles are present in the process for the development of appropriate job descriptions, evaluation standards, assessment tools, and reward and sanction structure discussed earlier. This involves the utilization of course alumni as well as other individuals from the field as key informants in the process of defin ing jobs, assessing the course needs for the future, as well as evaluating the courses experienced in the past. Important participa tion principles are involved in the team building exercises which are used in the training development process as well as in the delegation of leadership and responsibility to individuals when they are ready to assume these jobs.
Another important participation principle which has not been discussed is the attitude that field officers have toward farmers. This requires an important attitude change. We must move from treat ing the farmer as inferior to treating him as a client whose ideas, wishes and experience are to be listened to and taken into consideration. This does not mean giving the farmer everything he wants, but listening to his concerns and taking his ideas into advisement, no matter what his station in life. Irrigation systems would generally perform far better throughout the world if farmers
17 wore listened to and more use were made of their knowledge of the local situation.
Participation has a particularly important role in the action research that is done to support and complement experiential training. With ongoing action research there is a need to begin to bring farmers into the management interface with irrigation management agencies. Engineers must understand the role that they can play and the poten tial improvements which can be achieved with their participation. In general, irrigation agencies try to do too much for the farmers. Engineers extend their authority too far down into the systems thereby ruling out the positive and beneficial effects of organized farmers acting in the interest of their system. There are many lessons to be learned in the area of farmer participation particularly as they relate to management.
III. REVIEW OF AVAILABLE TRAINING MATERIALS AND TECHNICAL MANUALS
The following section includes conclusions from a review of materials, examples of training materials to emulate, and examples to duplicate. Also, general conclusions are provided about the process of training material development and the role of the ISMP technical assistance team.
A review of the available training materials and technical manuals from other programs ,roilzrd the world lead to the following five conclusions:
1. There are some very good materials avilable from a limited number of programs. The Ministry of Lands and Land Development (MLLD) should establish a collection of as many of these as possible, Just as a library would collect relevant reference volumes. These materials can spark the imagination of the developers of training material appropriate for Sri Lanka. (These materials include those with the project officer collected from India, Pakistan, the Philippines, the Water Management Synthesis Project and Egypt.)
2. The ISM Project needs to develop its own specific training materials needed for the program. There are no shortcuts to training material development. Collected materials from other programs should be identified as good examples of design and development, but they should be limited to that role alone.
3. Some materials will have general applicition across many locaticils and projects. The widely useable materials are best identified and developed by the STI's, whose mandate will include the development of video lessons as well as
18 printed materials. Video technology is sufficiently costly that a large number of cassette copies need to be made in order to spread the cost. The STI's will have to decide on the topics of general applicability and separate the,e from those which are state-specific. This needs to be done at a very early stage of the ISMP to support training and action research. 4. Each of the STI's will need to employ a multidisciplinary staff as the Central training development team, including engineers, sociologists, communication specialists, exten slon educators, agronomists and economists if they are to develop the general materials for aDDlication across all 2frLnka. A careful personnel selection based on both t,ichnical background and writing skills will need to be made. Training material development is a highly developed art. Exceptional talents are possessed by only a few professionals.
5. Each TI_ iLfI need to identify the persons who have tJh APIJ2rtP.L wrtinO skills to develop the state trainjng &qpJ±J.L],vL. Ar intcrdisciplinary effort of the core dis ciplines mentioned under four above will be required. Much effort will be required from the director at each STI te assemble an interdisciplinary team and to get interdisciplinary performance from the assembled group. Example of carefully designed training manual:
A good example in this category is the training manual for water management specialists developed in Pakistan. The design of the lessons follow the foimat discussed earlier.
I - Title 2 - Behavioral objectives 3 - Materials needed 4 - Site conditions required 5 - Duration of session 6 - Expected output 7 - Introduction 8 - Discussion 9 - Guide questions 10 - References
i.sfomatIs suagested for adoption by the STI's. The syllibi and materials viewed in several STI's need more organization and specificity to ISMP needs. Materials simply lifted from some profes sional paper or university lecture are loaded with "academic excess baggage." Such material is irrelevant to the practical problem solv ing skills needed by trainers. It is suggested that this manual be
19 .Liws,ated and distributed to each STI for emulation in their training material design and development.
Example of general training materials adoptable for the interim period. An example of a generalized methodology manual that has application with only slight modification all over India is the two-volume Diagnostic Analysis of Irrigation Systems from the Water Management Synthesis Project. This basic material which was first developed and used in the watercourse survey of Pakistan, has been found to be useful In Egypt, Sri Lanka, Bangladesh, Colorado, Gujarat, Rajasthan and Madhya Pradesh. Thisi, only one example of the general type of training material which can initially be borrowed and used in a wholesale manner with modification. With further experience in Sri Lanka however, the methods applicable to Sri Lanka will need refinement. Some methods will need to be deleted and some new ones added on a project by project basis.
Conclusion: No Shortcuts
In .1usiopt training materials and technical manuals from other programs and other countries can only provide ideas to stimulate those charged with this resDonsibilitv in Sri Lanka. There are no easy solutions in this matter. At the Irrigation Management Division (IMD) a Water Management Improvement Cell (WMIC) will have the dual function of producing those materials that are generally applicable throughout the program across Sri Lanka and at the same time providing a uniformity and information exchange center for the materials that are developed in the projects. WMIC's role in relation to the various projects needs to be interactive, iterative and supportive to every extent possible.
IV. ACTIVITIES IN SUPPORT OF EXPERIENTIAL TRAINING
A number of activities initiated under the umbrella of the ISM Project will play important supporting roles toward the achievement of the project objectives. These activities will largely focus on the support for and enhancement of the human skills required for the project to reach full implementation and effectiveness at an early stage. These supporting activities are initially seven in number, including (a) training trainers, (b) the world-wide course on compara tive irrigation experiences for scnior government officials, (c) the work of the U.S. technical assistance contractor in support of the project, (d) the use of short-term consulting services on training and action resfarch, (e) the action research conducted to complement the training erfort, (f) the use of annual reviews and planning workshops, and (g) using recognition and awards. The following sections detail these activities and how they can be made mc-e supportive of the ISM Project.
20 A suggested timetable for these supporting activities is shown in Figure E-9. Some of the activities suggested occur annually, such as the comparative irrigation experiences course, the annual workshops for review and planning and the annual traiifng of trainers. The timetable for training action researchers is more flexible as the specialized consulting services are used in support of the project. The work of the T.A. contractor would be continuous once the organiza tion is engaged and in country.
A. Training Trainers
Training trainers is an essential activity at the beginning of the project. It is essential that this training be of high quality, because only through the definition, development and polishing of quality trainers and training skills, can the project hope to achieve its optimistic objectives. This is a quality decision for which the extra time and cost of sending the key trainers to an overseas center of training excellence is time and money well spent. The trainers' training would attempt to alter the perception and skills of the trainers away from the traditional pedagogic lecture methods used in most academic situations to more appropriate methods for the materials, topics and trainees who are clients of the STirs. Part of this is an attitude change with the real izatir- that the trainees have skills and background from their fiele . )riences over the years that can be applied to the topic at hand. :..,. recognition requires special skills for the trainers to ask the pertinent ques tions at the proper time, to draw out the answers from the client trainees, using the Socratic method. The course that the trainers require should include four important parts. First should be an introduction to the general topic of irrigation management, experiential training* or training by doing or practicing the skills. Second should be a detailed interdiscipli nary diagnostic analysis workshop activity. This would be essentially a combination of introduction to and practice of skills of each train ing group representing the disciplines of engineering, soils-agronomy, sociology, economics and extension/communications as a team building activity. Each STI core group should produce a diagnostic analysis report from the field work of four to five weeks. Ibird should be the training on communication skills, development of lesson plans, train ing aids and concise training materials, and the practice of new training skills on the peer group in front of television cameras. The production of a video record of the training attempt would also help the trainee to review with the course communication specialists the strong points and weaknesses of the trainer-trainee in the performance of his training assignment. Repeated performance of the different training skills would provide over six weeks improved skills and added confidence in parformance with the video record as proof of the
21 CHRONOLOGY OF ACTIVITES IN SUPPORT OF EXPERIENTIAL TRAINING AND ACTION RESEARCH OF THE IRRIGATION MANAGEMENT PROJECT
1984 1985 1986 1987 1988 1989 1990
SENIOR OFFICIALS X X X STUDY TOUR OF IRRIGATION FACILI- TIES & AGENCIES
STATE TRAINING X X X X X X X INSTITUTE ANNUAL WORKSHOP FOR REVIEW & PLANNING
SPECIALIZED COURSE XXX XXX XXX FOR THE TRAINING OF STI TRAINERS
ACTION RESEARCH X X X X X X X GROUP ANNUAL WORKSHOP FOR REVIEW & PLANNING
SPECIALIZED XXX XXX XXX COURSE FOR THE TRAINING OF RESEARCHERS
WORK OF USA XXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXX CONTRACTOR S RESIDENT TEAM OF SPECIALISTS
SHORT TERM XX X X X X X X X X X X SPECIALIZED CONSULTING SERVICES
Figure E-9.
22 improvement over time. The fourth component would include one semester of formal course work in the trainer's specialty to fu'ther upgrade his disciplinary skills. This semester would be accompanied by weekly meeting and seminars for the STI core groups to begin to define or redefine their curriculum to meet the needs of the program and with respect to their newly acquired knowledge in training methods and subject matter specialization. The end of this seven month period covering the four important parts could be capped by individual narra tive reports of accomplishments by each of the trainers as a require ment for graduation.
Training t'ainers for the first three years should be done at a center of expertise overseas. After the first several years, an evaluation of the trainers performance in each of their respective STI's should be conducted to select the best training skills in each of the STIrs nationwide for the composition of an ad hoc national training core group. From that point onward, the training of trainers should be done in Sri Lanka, perhaps with the assistance of the Institute of Development Administration. This would provide the central body of disciplinary expertise with qualified trainers to train other trainers newly joining the MLLD service, in conjunction with the training skills and communication skills of the specialized training institute. The development of a capability in Sri Lanka is an important institutionalization of the ISM Project concept ef making Sri Lanka self-reliant in its training capability.
B. World Irrigation Course for Senior Officials
A world range of agroclir..atic conditions, physical environments, governmental and institutional formats and levels and intensities of farmer-irrigator participation occur in irrigation projects around the world. While the farmer ,,.! government responses in each situation are site and culturally specifii, there are many observations that can spark further inquiry about modifications or aprolications to the Sri Lanka context. The on-farm water management experiences of Pakistan and Egypt, the irrigation districts and private irrigation companies o' Colorado, the large scale reci.amation effort of the Salt River z je, t and the Welton Mohawk Project of the U.S. Government in Arizona, the private irrigation of the Imperial Valley of California and the farmer participation efforts made in the Philippines are all projects that are worth seeing and comparing for lessons. It is proposed that a specially guided irrigation course be established for six to twelve rivernment of Sri Lanka irrigation officials to visit these above mentioned systems and projects to conduct a comparative analysis and determine innovations that are applicable to Sri Lankan conditions.
Through the world irrigation course the participants would be able to:
23
t I - compare irrigation experiences and witness the results of a range of government programs involving management, training and action research;
- analyze the observations systematically to compare the projects and government agencies visited; and
- write a detailed report on the comparisons, analyses and applicability of observations to specific ISMP Implementation, training and action research activities within the respeciive project sites in Sri Lanka.
The philosophy of this type of irrigation course is that the leadership of Innovative irrigation research and training programs must have a wide range of experience to effectively manage such programs. Increasing the range of experience of these key officials is the intent of this world Irrigation course.
C. Work of the U.S. Technical Assistance (TA) Contractor
The TA cf'ntractor who is chosen to support the ISM Project i-epresents a key link in making possible the achievement of project goals and fulfillment of project objectives. Support of the STI & WMIC will require special attributes of the contracting organization due to the human development focus and the process orientation of the project structure. The leadership of the field team and the personnel fielded as specialists will be important attributes on which the contracting organization will be chosen. The contracting organization must have had extensive prior experience In the special type of experiential training and action research In South Asia as well as the combination of training and research into a program to achieve the desired outcome. A set of quality criteria are suggested for the selection of the contractor.
The ISM Project contractor shall have:
- at least 5 years experience in experiential training design, development and implementation in South Asia since 1970;
- at least 5 years of experience in action research design, implementation and evaluation with irrigation agencies in South Asia since 1970;
- a demonstrated ability to bring action research and training into a unified, mutually supportive program in the South Asian region;
- an ability to nominate and place a field party chief with at least five years of relevant experience In South Asia, extraordinary leadership, communicatio¢n and management skills
24 and with at least a State Dep&atnent Level 2 of spoken appropriate language skill, upgradeable to level 3 within one year of the start of the project;
- an ability to nominate and field specialized training and research personnel who have at least three years of relevant South Asian experience and at least a State Department Level 2 of spoken appropriate language skill, up'radeable to level 3 within one year of the start of the project; and
- make a commitment of its personnel for the duration of the project; subject to annual evaluation of the NLLD and the USAID Mission in Colnbo.
As can be seen from the above descriptiont this project requires an extraordinary TA contractor, not the usual warm-bodied recruiter of unemployed castoffs from the street. A serious firm with proven experience iii South Asia, in experiential training, and with action research, and with an ability to field experienced personnel who have proven experier-:e and language skills as needed.
Without extren care about choosing an experienced and serious contractor, the Irrigation Syster Management Project will likely not come close to achieving the potential that it holds for impact on irrigation management in Sri Lanka.
D. Specialized Consulting Services
The ISM Project will need specialized consulting services case by case. In the support of the training these will include:
first riori.ty: Assistance for the annual workshops for planning and review of the training program and action research. This would be a specialist in training and research to assist the STI's through self-evaluation and planning.
Second priority: Assistance for the conceptualization, plan ning design, and training of the personnel to conduct the action research program. This would perhaps be in the form of a team of specialists for a two-month TDY for two week reviews of on-going action research irrigation precedents and subsequent conduct of a six-week workshop on an actual case of the action research process and methodology.
-Thirdpriority: Specific assistance for the establishment of WMIC. This should be a development communicator with specific skills in the es':ablishment of a unit to develop training materials, includ ing providing training to the core training material specialists.
25
Cj -Fourth priority Specific assistance to aid in the develop ment of methodological handbooks for the conduct of the action research program. This would likely require one to two month TDY's two to three times in the first year of the project.
As can be seen, these are mostly start-up activities for the assistance of the STI's and WMIC to reach productivity at an early date.
E. Action Research in Support of Experiential Training
As discussed earlier, the action research activities and the experiential training activities are highly complementary in their actual implementation. Both of these activities are part of the framework established in the research and development pr;,cess shown in Figure E-10. The four steps of the research development process are diagnostic analysis or the identification of problems, the sarcjh for solution, the assessment of solutions and the pilot Droject imDlemen ±itJ.an of the tested solutions. This cycl corresponds t, the project cycle with heavy emphasis on evaluation at each step and feedback loops and iterative steps within steps. The process becomes an action research and development process with -e introduction of the operat- Ing agency or farmers' group as partners in the research process. A particular emphasis is made on practical problems and the answering of questions about operations which are important to the operating agency or the farmers' group. The benefits of action research are listed in Figure E-11. These emphasize the role and ben3fits of the research. A stage is reached over time when a learning process is internalized in the agency which provides the momentum to keep the research and development process moving cyclically.
Experiential training supports all four stages of this action research development process. In this way action research and experiential training are mutually supporting. An added advantage is the fact that the trainers benefit fron an exposure to an active participation with the action research process and the action research. Trainers become better researchers after having designed, developed and implemented project activities. The action research site often is a good location for the practical training. This can be the place for the practicum for the trainees to earn their wings before returning to their jobs.
It is important for the STI's to integrate the action research function with the experiential training at an early date and t% begin training on action research methods early. The program must .e care fully thought through and the staff carefully chosen. Action research expertise and experience need to be developed early so that a critical mass can be achieved in a timely manner, for full ISM Project impl ementati on.
26 THE RESEARCH DEVELOPMENT PROCESS
DIAGNOSTIC ANALYSIS
PROJECT SEARCH FOR IMPLEMENTAT ION SOLUTIONS
ASSESSMENT OF SOLUTIONS
ASSUMES: SYSTEMS APPROACH INTERDISCIPLINARY METHODOLOGY PARTICIPATION OF THE CLIENTS OF IRRIGATION INSTITUTIONAL CAPABILITY BUILDING MANAGEMENT ORIENTATION TOWARD POLICY DECISIONS INTERNAL MONITORING AND EVALUATION
Figure E-1O
27
'I ACTION RESEARCH: PRACTICAL RESEARCH THAT IS CONDUCTED WITH OR WITHIN AN IMPLEMENTING AGENCY THAT IS ORIENTED TOWARD ANSWERING QUESTIOJS ABOUT OPERATIONS WITH IPORTANT POLICY IMPLICATIONS....s...
BENEFITS OF ACTION RESEARCH:
1) RESEARCH IS CONDUCTED IN PRACTICAL MANNER AS A MEANS TO ACCOMPLISHING AN OBJECTIVE.....
2) THE AGENCY HAS AN INCREASED ACCEPTANCE OF RESEARCH AS A VALID IMPROVEMENT STRATEGY BECAUSE OF ITS INVEST14ENT IN tATERIAL AND PERSONNEL TO THE PROCESS.,...... ,....
3) THE ORGANIZATION FINDS THE RESULTS CREDIBLE BECAUSE ITS OWN PEOPLE WERE INVOLVED IN COLLECTING DATA, ANALYZING AND WRITING THE REPORTS RESULTING FROM THE RESEARCH, AND
4) THE AGENCY LEARNS FROM THE EXPERIENCE AND IE LEARNING PROCESS FEEDS THE DECISION ':AKING PROCESS TO MAKE THE ORGANIZATION MORE EFFIC- IENT AND EFFECTIVE SUCH THAT A CAPABILITY IS INTERNALIZED TO SOLVE FUTUIE PROBLEMS.,...
Figure E-11
28
U, F. Recognition and Awards
Often the financial renumeration that is provided to workers in state agencies is insufficient incentive for the extraordinary efforts required by the program. In many cases when cash bonuses are not possible# it becomes useful and supportive for the program to establish annual awards in certain categories where excellence in training or excellence in action research merit recognition. 'he annual award does not have to cost much# can take the form of a trophy or certificate and can be paid f- fran private donations If funding limitations exist.
Carefully thought thrcugh criteria should be establish3d well in advance so that the work of an impartial board of judges becomes straightforward. A minimum ztandard should be established and the award should be left vacant in any year that the standard is not met.
Perhaps the CWC is the level from which the ewards are best judged and presented. Each state training institute and action research center should have award possibilities in relative equality so that individuals have opportunits in either activity. An annual awards ceremony can be sandwiched into another central level function, again to avoid extraordinary costs that a separate occasion would requi re.
V. SUMMARY
Irrigation management training required for the IS14 Project. requires marked changes in attitudes and behavior by personnel in the MLLD. Specific training on new skills or long neglected skills will be required to successfully implement improved irrigation system management in Sri Lanka. The type of training required is linked direcly to the tasks to be performed and is best accomplished in a experiential format wrz'ein the actual skills needed are practiced to achieve proficiency. The obvious comple,,o!:,,irlty between action research on operational questions and experlr,tial training in implementation of the ISMP is suggasted as th. basis for instituting a learning process In MLLD.
A training development cycle is suggested as a process for the STI's to begin matching training objectives to the needs of the field programs. The steps in the process are as follows:
- Review Job descriptions and performance standards; - Revise job descriptions and performance ;.Landards; - Conduct knowledge inventories and performance evaluations; - Evaluate and rank needs and behaviorial objectives; - Assemble multidisciplinary team according to the course content; - Develop framewurk, syllabus and lesson plans; - Develop materials pairing disciplinary consultations;
29 - Conduct and evaluate the training; - Visit and evaluate the training alumni on the job; and - Repeat the steps above for the next course.
These steps and the related annual review and planning cycle incor porate important management elements. Especially important are the concepts of e'aluation, feedback and review; the delegation of responsibility; and the new directions suggested in personnel manage ment and evaluations. Participation was suggested on the part of the trainees in the course and trainer evaluation, as well as the concept of utilization of alumni as an important source of information in the development and analysis of courses conducted or to be conducted by the STI for the first time.
A review of available training materials and technical manuals from other programs provided one example for the WMIC to emulate and one example to borrow, duplicate and improve on as time proceeds and more experience at the STI's is acquired. The major conclusion is that most good training materials are developed for specific purposes and specific programs. The goals and objectives of these programs may be different than those of the ISM implementation, training and action research functions. It is ovident that WM1C and the STI's will have to develop materials related to the specific needs of Sri Lanka. This will take time.
Several important activities in support of experiential train- Ing are listed and discussed along with a generalized timetable for their occurrence. These important activities are:
- Training trainers abroad; - World irrigation course for senior officials; - Work of the U.S. contractor; - Specialized consulting services; - Action research in support of experiential training; - Annual revi,4 and planning workshop; - Recognition and awards.
In conclusion, the Irrigation Systems Management Project of the Government of Sri Lanka has tremendous potential to make a long term impact on Irrigation oporations and maintenance in the country. This process oriented project is the needed complement to the tremen dous investments being made in irrigation and land development infrastructure. With the outputs of this project at its full poten tial ,.Jother training efforts assisted by the other donors, Sri Lanka will be able to provide improved production possibilities to millions of farmers.
30 Key Questions in Training Developmento Implementation and Evaluation
1. Who are the clients? a. What is their relationship 'to the ultimate water users? 2. What are the job descriptions of the clients? a. Do they know? b. How informed? 3. Is the job description congruent with program objectives? 4. What do the clients need to know? a. How much do they know now? b. How determined? 5. What do the clients need to practice? a. How much do they practice now? 6. What attitudinal and behaviorial changes are required in clients? a. Are they aware of needs? 7. How will clients be evaluated? a. Do they know how they will be evaluated? 8. How will good performance be rewarded? a. Poor performance sanctioned? 9. What guidelines have been provided for program development? 10. What constraints or limitations have been placed on program? a. Extra advantages? 11. What other constraints have arisen during the course of the program? a. Advantages? b. What organizational changes are required for program implementation? 12. What is the organizational structure of the training staff and consul tants? 13. Do training staff have specific job descriptions? a. Do they know these descriptions? 14. How are the training staff evaluated? a. How often? b. By whom? c. Do clients participate? 15. What is the ratio of classroom/field? a. theory/practical? b. new/repeat material? 16. What is the ratio of technical/organizational/communication/methodology? Material? 17. What changes are needed to meet the needs of the clients? a. Ultimate water users? 18. Is feedback sought from ultimate users? 19. How .iill such chdnges be incorporated? a. Who will have responsibility? 20. Is there a systematic review process in place? a. Can one be implemented? 21. How is feedback obtained from the field? Past participants7
31 22. How are training plans made from year to year? 23. Do annual training plans change with feedback from the field? 24. Is there information and experience interchange between government departments and universities? 25. Is deputation practiced? How? 26. If not practiced now, can it be instituted? 27. How will impact of training program be ultimately measured? 28. How will training program impact be monitored? 29. What role will alumni have in training develnpment cycle?
/ 32 A,/ I Key Concepts in Achieving Quality Training Programs
The following are some key concepts that are prerequisite to attaining quality training programs. This list is not exhaustive. The consultant challenrls the faculties to expand the list frrm their own experience. 1. Direct correspondence between job requi.jowt nd trairji in objectives: This helps to focus the training on actual needs and provides the trainee w!tI Knowledge and skills that are of direct benefit to himself, to the end users of water and to the water and land management irmp.ovement program as a whole.
2. Use the behavioral objectives format: This format emphasizes what the client (trainee) will be able to do at the end of the lesson and stresses the experimental type of training that invol ves putting the skill Into practice. 3. Develop lesson plans carefully: Use the simple format of title, objectives materials, training aids, site, duration, introduction, presentation, application and output (questions, etc.) to focus the lesson into a concise unit. 4. Use a participatory training approach: Emphasize the knowledge and skills that the client.trainees bring to the training forum and utilize the Socratic method to bring out the answers through dialogue rather than lecture.
5. Seek a balance between theory and practical aspects: Theory should be minimized since the training is not for an academic degree but is done to support an action implementation program. 6. Seek a balance between classroom and field activities: Classroom activities should use methods beyond just lectures, like discussions, simulation games, drama, debates, and field exercises should be scheduled daily for the clients to practice what has been learned in the classroom.
7. Force now skills to be Dracticed: Practical experience with the nc; knowledge and skills will allow reduction of inhibitions to use them later on the job and forms the core philosophy of experienced training.
8. Avoid academic excess baoaage: Each academician has been taught to know more and more about less and less, and each has pet topics into which they like to lecture in great detail. Such
33 information is often too detailed and too technical to be of any use to an action program and must be discarded as superfluous to the implementation program at hand.
9. Include stimulating mental exercises: The development of a problem solving attitude can be enhanced with carefully constructed games and mental exercises, as well as the development of riddles and use of proverbs to cause certain lessons to bs internalized by the clients.
10. Design soecipl purpose visual aids: Visuals especially designed can provide great support toward achieving training goals.
11. Limt handouts to specific client trainee reojjuirJm : Handout lecture materials and background reading materials need to be focused on the client group category and Job ssignment and should be a concise summary for review and future reference purposes.
12. Evaluate training program, trainers and trainees. Programs are generally very good at evaluating trainees but for the program to improve with time and to meet the needs of the implementa tion programs both the trainsrs and content of the training require periodic review and revision.
13. Follow-up clients with on-the-lob visits: A list of client assignments can be shared by faculty and efforts made to visit alumni at their Job sites to gain further insight for training improvement for future courses.
14. Use a simple newsletter to keep client-alumni informed: A newsletter can share the results of training institute efforts in training and action research and provide a forum for expansion of the water and land menagement coalition. 15. Define a role for the alumni: The alumni are a resource to be used in defining needs for training, changing conditions in the field and to assist in the expansion of the coalition on water and land management whose purpose is to improve effectiveness of irrigated agriculture.
16. Build a water and land management coalition: Encourage in numerous ways the informal establishment of a group of professions from many backgrounds and disciplines who are dedicated to the improvement of water and land management.
170 Allow time for recreation - intramurals: Provide time and encouragement for recreational activities from mental exercise (like chess) to physical exercise (like sports) to prevent the lethargy that often occurs in intensive training programs that overem phasize the mental process.
34 18. Emphasize th farmer as the end-user client: Focus such that the irrigation professionals ca undergo an attitudinal change and treat the farmer as the client whose problems and interests are to be served by the government servant. 19. Build aood communication skills: Cwmunication skills require great effort and much encouragement. Training and practice must occur before effective communication occurs.
20. Training should be an enjoyable experience: Too often training is tedious and difficult. Make it a pleasant experience and the acquisition of skills a fulfilling experience that results in rewarding career advancement through improved Job performance. 21. Employ new training techniques: Innovation should be encouraged to bring new training techniques into the program both to challenge faculty for greater competence and trainees to greater efforts.
22. Employ new training technologies: With the revolutiot that is occurring in many fields of technology* opportunities arise for the use of video recording in training and computer-assisted simulation of systems or processes as means of making the trai',ng more relevant.
35 Annex F: RESEARCH GUIDELINES: APPLIED AND POLICY ISSUES TO SUPPORT THE IRRIGATION SYSTEM MANAGEMENT PROJECT Alan C. Early*
Introduction
A number of questions important to the implementation of the Irrigation System Management (ISM) Project of the Government of Sri Lanka (GSL) and resulting 'lessons derived from the project can be addressed by carefully defined research. Three categories of research would focus on a) practical questions for ISM implementations, b) major policy issues for future investment by the GSL, and c) data base accumulation for future utilization. The research would answer prac tical questions about 1) the state of irrigation system performance losses in dry zone schemes of Sri Lanka, 2) the practical implications of a daily operations model to guide water deliveries throughout the Gal Oya Left Bank System, 3) the practical assignment qualification intensity and duration relationships for institutional organizers (O's) in catalyzing farmers' organizations (F0's) and 4) the inten sity of personnel assignment for effective management, traini,,g required, and tools needed to provide for effective operations and maintenance (O&M).
Major policy issues would be addressed in research focused on 1) irrigation service fee collection, use, and accountability and 2) the performance of various combinations of structures and management as they affect future investment decisions for irrigation improvements in Sri Lanka. The building of 1) a store house of information on indigenous tank management to be used in the form of case studies for future irrigation management and institutional organization training and 2) the creation of a data base and annotated bibliography would be the third major outcome of the ISM sponsored research.
Practical Questions
At present, there is very little of a quantitative nature that can be said about the state of irrigation efficiency, equity and economy in Sri Lanka. A state of the art paper on irrigation manage ment is needed, and would be beneficial to personnel implementing the ISM.
*Associate Professor, Agricultural and Chemical Engineering Department, Colorado State University, Fort Collins, Colorado.
,' A daily operations model for irrigation allocation and control is sophistication unheard of at present in Sri Lanka and elsewhere in Asia. Yet, by the twenty-first century, this approach will most likely be common place. Sri Lanka has an opportunity to test the concepts and become a leader &mong nations in Asia in the use ct this technology.
The farmer organizational groundwork done at Gal Oya Left Bank Scheme (GOLBS) has had tremendous impact on the conservative, tradi tional engineering community. Yet, the methods and personnel are not fully effective. Further iteration is needed to make the ISM com ponient on FO fully effective and ultimately bring FO's into the scheme management team.
The intensity of irrigation management personnel, their training, accountability and effectiveness remain open to further refinement. An opportunity exists at GOLBS to learn answers to irrigation management refinement needs.
J.4or Policy Issues for Future Investment
Irrigation service fees are being collected for the first time in 1984. What is to be done with these fees, how can collections be sustained, what accountability to farmers does the IMD/1D need to produce to maintain the physical system and the psychological con fIdence of farmers so that they want to pay, are among the relevant issues for fee collection policy research.
The structure of the ISM project with various combinations of structures and management allows the institutionalizing of a learning process in the MLLD/IMD/ID. As these combinations are monitored and the costs and benefits are quantified, great possibilities exist for guiding future investment strategies in irrigation management.
Data Base Accumulation
The long history of irrigation in Sri Lanka and the multitude of small-scale, farmer-managed Irrigation systems should provide historical precedents and current day guidance for farmer organiza tional efforts in the ISM. Collection of case studies, analyses and implications should directly input into the implementation of the ISM Project.
The formalization of an irrigation management collection, establishment of a data base on irrigation, and production of an annotated bibliography should raise the consciousness of many profes sionals dealing with irrigation management in Sri Lanka. Support to the establishment and sustenance of an organization to do this work is very much coincidental with ISM objectives.
2
(.1. Reauests for Proposals
The development and enhancement of Sri Lankan institutions of higher education and research to engage in applied and policy research would be a secondary benefit from the studies sponsored under the ISM project. The relationship expected would be one of a contractual nature wherein the Ministry of Lands and Land Development (MLLD) through an ISM Steering Committee or Advisory Committee would elaborate a prospectus for the research to he accomplished and request that proposals be submitted. The potential institutions would be asked to submit their proposals following a suggested outline and specified budget categories. A sample of a research proposal outline is surgested below.
Research Proposal Outline
I. Title II. Background (paragraphs) III. Objectives (research questions to be answered) IV. Timetable (duration and detailed plan of work) V. Outputs (data base, reports, lessons, workshop) VI. Significance (tn ISM) VII. Personnel Requirements (budget) VIII. Material Requirements (budget) IX. Location (site) Requirements X. Method of Arrangement (in-house/contract/subcontr&ct) XI. Potential Research Participants (individuals with relevant expertise and why this agoncy can do the work)
Annual Research Cycle
The research process has four entry steps, a cycle of seven steps and a conclusion in four exit steps (see figure below). The entry steps are:
- identifying of research topic and potential researchers.
- elaborating of a prospectus and request for research proposals.
- selecting a research contractor based on the proposals submitted and negotiation of the proposal provisions.
- signing contract for research.
3
/ Figure F-1. E1 aboratten Research of Prospectus Contractor & Request for Selected & - Research & Proposals Proposals Contract Potential Negotiated Awarded Researchers L oIdentlfedt
Final Develsopment Report of Annual
-- dvelpnn rWorkplan
End-of-Projeng ( Works hop Annual Rev iew n n Cleto Ddaattaoe
Sof Resultsi1ta Annual Data Reducton Repnert. & Analysis and l . Presentation
Delineation hRorting Hypothesis Researchof Further Conclusions Testing
The cyclical steps are.:
- developing annual workplan
- training (re-training) personnel and data collection
- data reductions analysis and presentation
- testing hypotheses
- reporting preliminary conclusions
- preparing written annual report of findings
- completing of annual review of progress
4 The end of cycle steps are:
- proparing a final report draft, review and finalization
- circulating final report and conducting a workshop to discuss results - disseminating implications and policy applications - delineating further research topics to be undertaken. The overall relative timetable of events in the research component of ISM project is detailed below. This starts with the specification of questions to be answered and request for proposals and ends with the submission of the final report and completion of a workshop to discuss and interpret the results. The relative time scale from beginning to end includes a variable portion corresponding the number of iterations of the annual research cycle required by each topic.
Relative Sequence of Research Events: Performance Indicators Time
0 Research questions specified 1, Request for proposals 5% Proposals received 7% Proposals reviewed 10% Research contract negotiated & signed 12% Personnel fiel ded 15% Equipment (if any) fabricated/purchased Variable accord- First seasonal (YalA or Maha) interim report submitted ing to type of Second " N N " research and pro- Third " N N N portional to Fourth N " N f length of research contract 95% Draft final report submitted for review 98% Review by appropriate agency & comments provided 1Final report submitted 110% Project workshop for senior officials and irrigation researchers
5
4I/ The ISM Project of the GSL has a significant opportunity for the initiation of a "learning process" for Sri Lanka to begin to sort out policy and implementation questions for the future. The following eight prospectuses are suggestions that might start this "learning process" on an appropriate set of research questions.
6 I. PROSPECTUS: IRRIGATION WATER LOSSES AND REUSES
A. Research Topic
Irrigation Water Loss and Reuse Oiantificatlon in Tank Irrigation Schemes
B. Background
The long history of irrigation in Sri Lanka indicates a highly successful adaptation of the technology of irrigation to the needs of growing crops. With this history and performance adaptation well understood and appreciated, it remains remarkable that irrigation management has not moved to the next plain of intensification and that very little published information exists on the actual losses that occur in irrigation systems and little is known about the efficiency of irrigation system operation. Another remarkable feature of irriga tion systems in Sri Lanka is the degree to which those systems share a reuse component added to the system by downstream users beyond the control of irrigation authorities. Both of these areas of losses and reuses, are of major importance to understanding and improving the performance of irrigation both in water use and In terms of production (yields, areas served and cropping intensity). Quantification of losses, areas served and reuse dependencies are essential to the development of modern operations and maintenance procedures and practices.
C. Objectives
The objectives of this study would be to quantify irrigation losses and efficiencies in both time and space in elected tank or reservoir irrigation schemes in three ISM district sites by answering the following questions:
1. What are the magnitudes of weekly, monthly and seasonal operational and conveyance losses and efficiencies in primary, secon dary and tertiary (and quaternary, if appropriate) irrigation scheme components in MahA and Ya. season, with respect to specified areas, added areas and reuse areas?
2. What are the magnitudes of weekly, monthly, and seasonal distribution losses and efficiencies in the primary, secondary and tertiary irrigation scheme components in hahA and Yial seasons with respect to specified areas, added areas and reuse areas?
3. What are the magnitudes of weekly, monthly and seasonal water use efficiencies (for rice) and application efficiencies (for upland crops) on a representative sample of farms in MA and YA1A season with respect to specified areas, added areas and reuse areas?
7 4. What are the magnitudes of crop (evapotranspiration), land (seepage and percolation), and land preparation water requirements of a representative sample of fields in MAA and YAla seasons?
5. What are the magnitudes of weekly, monthly and seasonal overall system irrigation efficiencies in MAbA and XaJ season, both with respect to the specified and actual areas irrigated and consider ing the reuse component downstream.
D. Timetable
The duration suggested is two years. It is expected that three subprojects would occur under this topic, one in each district (Polonnaruwa, Kurunegala, and Amparai) covered by the ISM project and contracted by a separate faculty of engineering (agricultural or civil) of two universities. The two-year duration would cover four cropping seasons, the first of which would be consumed in start-up activities: personnel assignment and training and equipment fabrication, and structure rating. One MabA and one YAA season would be required for time series data collection and one final season allowed for analysis, reporting and conducting a workshop on results.
E. Outputs
The outputs of the irrigation loss and reuse quantification studies would include:
1. A report that specifies magnitudes, descriptive statistics and qualifying conditions for specific, representative irrigation schemes in Polonnaruwa, Amparai and Kurunegala Districts with regard to operational and conveyance losses; distribution losses; application and runoff losses; land preparation, crop, and land water requirements; and system efficiencies on weeks, months and seasons.
2. Staff gauges in place and rating curves for all the sites along with water demand measurement devices turned over to the irriga tion department fnr use.
3. A quantification of the critical position in the system for water for priority improvements.
4. A technical report and operations manual for loss and reuse quantification.
5. A workshop jointly sponsored by throe contracting entities to discuss findings, implications and future activities.
8 F. Significance to ISM Project
The significance of the loss measurements in the studied schemes would be: 1) the establishment of a benchmark of the state of-the-art of irrigation performance in Sri Lanka, 2) raise conscious ness among engineers of the high rates of losses and poor consequent accountability of system performance to farmers' and the crops' needs, and 3) identification of the portion of the system with the highest losses and most critical needs for essential structural improvement# (ESI). These three outcomes would have major impact on the ISM project and would substantially influence further implementation on priority needs. G. Personnel Requirements
Each contracting entity would require the following:
rin ach) Njlfijjo 1. Principal Researcher 1 (24 months) Ph.D. Engr. 2. Field Site Engineer 1 (24 :onths) BS + 3 yrs. exp.
3. Technicians 2 (24 months) "A" level
4. Data Analyzer 1 (24 months) "A" level
Persons assigned to the project should be committed to the project for its entire duration by the contracting institution. Persons in categories 2 and 3 must plan on residing at the field site for the duration of the project. H. Material Requirements
The material requirements for each of the three contractors would include, but not be limited to the following:
No. Comment Current meter 1 direct reading preferred
Staff gauges 100 simple and stenciled onto wood or concrete structure Portable flumes 20 trapezoidal or cutthroat
9 Improved sloping gauges 100 with plastic rain gauge Rain gauge (if not already standard, non-recording central w/ID 1 o the service area Evaporation pan (if not already w/ID) 1 standard, Class A
Motorcycles 3 central to the service area 100 to 125 cc preferable Supplies
I. Location Requirements
The suggested sites are as follows: 1. Polonnaruwa-Parakarana Semudra Scheme-University of Peradeniya: Agr. Engr. or Minneriya (Gal Amuna) Scheme 2. Amparat-Gal Oya Right Bank Scheme-University of Moratuwa: Civil Engr. 3. Kurunegala-Ridi Bendi Ela Scheme-University of Peradeniya: Civil Engr. J. Method of Arrangement
Contracts awarded for separate work in three previously defined areas of the dry zone. K. Potential Research Collaborators
Leadership No. 1 - Univ. of Moratuwa Fac. of Civil Engr. Leadership No. 2 - Univ. of Peradeniya Fac. of Civil Engr. Leadership No. 3 - Univ. of Peradeniya Fac. of Agr. Engr. Cooperation - with the Irrigation Department
Collaboration - with the Water Management Synthesis special studies component
10
j-.o II. PROSPECilJS: DAILY OPERATIONS MODELING AND IMPLEMENTATION
A. Research Topic
Development, Refinement and Application of a Daily Systems Operational Model in Gal Oya Left Bank Irrigation Scheme
B. Background
The Gal Oya Left Bank Irrigation Scheme has under the current water management project made a significant step in the development of a weekly water balance and allocation program for the Radio Shack 16B microcomputer. While the current model has a number of limitations due to the lack of information on irrigation requirements (evapotranspiration) and land water requirements (seepage and percolation), irrigation conveyance and operational losses, distribu tion losses, and water use and application losses, the present effort has accomplished the difficult first step. The second step will be the preliminary installation of measuring devices and staff gauges with consequent completion of rating curves. The third step will be the initial quantification of system operational water losses in conveyance, distribution and use. With these three significant steps completed under the existing project, the Gal Oya Left Bank Scheme will be prepared for the development of a more sophisticated manage ment model capable of accounting for daily rainfall as a supply in lieu of irrigation issues, hydraulic transients in the conveyances, and the specification of gate settings to make deliveries of water more responsive to actual needs of the crops grown under the anticipated irrigation system management project.
C. Objectives
The daily operational model study objectives as applied to the Gal Oya Left Bank would answer the following questions:
1. What specific adaptations are required to adjust the general Water Management Synthesis main systems management microcom puter model to the Gal Oya Left Bank Scheme?
2. What intensity of data collection is required (rainfall, crop and land water use, crop water stress) to make the model respon sive to the needs of the system?
3. What intensity of Irrigation Department personnel assign ment and corresponding skills are required for implementation of a daily operational model of the Gal Oya Left Bank Scheme?
4. What intensity of flow measurement, control and communica tion are required to make the daily operational model implementable and responsive to needs?
11 5. What are costs and benefits associated with the implemen tation of the daily operational model for irrigation system management?
6. What other factors would determine the long run implemen tability of a daily operational model for Irrigation system management?
D. Timetable
The duration is expected to be three years.
1986 Fiscal Year - installation of measuring devices - completion of rating program - adaptation of model to Gal Oya Left Bank
1987 Fiscal Year - fine tuning of model - trial implementation of model - operationalized daily data collection network
1988 Fiscal Year - implementation of operational model with full measurement of supplies and demand and system accountability
E. Outputs
The outputs of the daily flow model implementation project would include:
1) A specific model custom-fitted to the Gal Oya Left Bank Scheme.
2) An implemented network for measurement of
a) irrigation flows at all bifurcations in the GOLBS b) rainfall in all distributary-channel units of GOLBS c) irrigation requirements in all field-channel units of GOLBS d) visual crop water stress index in all field-channel units e) water reuse in downstream areas
3) A determination of the skills and intensity of personnel assignment required for implementation of the daily operational model.
4) A specification of flow measurement, control intensity and communication frequency required for implementation of the daily operational model.
5) A calculation of benefits and costs of daily flow model implementation an( other constraints to its use.
12 6) A technical report and an operations manual for daily flow model implementation. 7) A workshop to discuss and compare results among practitioners and professionals. F. Significance to ISM Project
The significance of the daily flow model for implementing improved system management accompanies and is central to the very learning process being implemented and institutionalized in the ISM project. The ISM project represents a landmark example of the shift that is taking place throughout Asia, de-emphasizing construction and rediscovering operations and maintenance. The designp testing and implementation of a daily operations model in the GOLBS will determine for Sri Lanka the third stage of irrigation system enhancement and improvement for the decade of the 1990's as the nation attempts to produce more food from existing irrigated lands, increase incomes of farm familiest and generate rural employment through intensified cropping systems.
G. Personnel Requirements
The project would require Vie following personnel:
M1. Duration (each) Quali fication
1. Principal researcher* 1 (36 months) Ph.D. or Ph.D. candidate
2. Irrigation engineer** 1 (36 months) ID standard
3. Field Site engineer*** 1 (36 months) B.S. engineering
4. Technical assistants** 4 (36 months) ID standard
5. Data analyzer*** 1 (36 months) "A" level
* Possibly provided by Water Management Synthesis N* Existing personnel with Irrigation Department u Project employees
13 H. Material Requirements
The material requirements would include but not be limited to the following:
ED, -CMMft= Current meter 2 Direct reading preferred Staff gauges 200 Simple stencil on concrete or wood Cast-in-place flumes 50 Trapezoidal or cutthroat Improved sloping gauges 200 With plastic rain gauge Rain gauge 3 Standard, non-recordings control to the service area Evaporation pan 3 Standard, class A, central to the service area Micro-computer 1 Radio Shack 16B existing at Amparai Motorcycles 2 100 to 125 cc preferable Supplies
I. Location Requirements
The Gal Oya Left Bank Scheme (under the three irrigation engineers) is the ideal site for this research because: existing micro-computer modelling precedent; near conclusion of pragmatic refabilitation; recognition by scheme management of the need for further understanding and modelling of the system to gain control; and initial steps taken to install measuring devices and obtain rating curves.
J. Method of Arrangement
Contract for technical assistance with Water Management Synthesis. K. Potential Research Collaborators
Leadership: Water Management Synthesis: special studies subproject on main system management Cooperation: Irrigation Department: personnel at Amparai on Gal Oya Left Bank Scheme
14 III. PROSPECTUS: FARMER ORGANIZATIONAL ALTERNATIVES A. Research Topic
Farmer Organizational Alternatives: Methods, Personnel and Intensity of Assignment of 10's. B. Background
The current Water Management Project has made an important breakthrough in understanding the practical requirements for implementing programs to organize farmers in informal water-user groups. The use of the institutional organizer as a catalyst agent has made a strong impact throughout the irrigation implementation, research and training communities and particularly among the prac titioners of irrigation. With this short history and a brief com parison to the participato,'y programs of other nations in southeast Asia and particularly to the Philippines, it becomes apparent that the current informal organizations at the field-channels have a con siderable future expansion available to them in terms of 1) legal status, 2) responsibility for O&M, 3) control over components of the irrigation system, and 4) area of coverage. As Sri Lanka matures further in terms of the government's recognition of the importance of farmers organizations, and further legislation is enacted to harness the potential benefits of farmers' organizations participation in operations and maintenance there is a corresponding need for the process of organizing to undergo an evolutionary improvement. This research project would further the level of understanding on organiz ing principles and answer some practical questions on 10 recruitment, approaches and development.
C. Objectives
The objectives of this research would be to answer the follow ing questions:
1) What are the corresponding advantages and disadvantages obtained from selecting and training personnel other than college graduates to be institutional organizers?
2) What are alternative organizational foci which can be practically used to enhance the organizational process to bring farmers organizations into partnership with the irrigation department to accomplish operations and maintenance?
3) What are the optimal intensities of assignment that apply to the initial intensive phase, the Intermediate phase, and the long term extensive phase of maintaining the earlier established organiza tional effectiveness?
15 D. Timetable
1986 Fiscal Year: a. Development of workplan b. Training institutional organizers/process docimento c. Implementation of all treatments d. Start process documentation 1987 Fiscal Year: a. Review first years b. Adjust workplan c. Continue process documentation d. Analyze results and draw preliminary conclusions e. Annual workplan
1988 Fiscal Year: a. Review second year's results and adjust workplan b. Analyze and write final report c. Workshop to discuss and compare results
E. Outputs The outputs would include:
1) A report indicating the pros and cons and advantages and disadvantages of using the following as IO's: college graduates, "A" level graduates, "0" level graduates, and other pertinent alternatives.
2) A report indicating experiences with alternative foci for mobilizing farmers in initial organizational work and indicating practical implications for future implementation.
3) A report indicating the intensity and duration trend relationships to organizational effectiveness for future implementa tion implications.
4) A workshop to compare and discuss results. F. Significance to ISM Project
The institutional organizing is in an early stage in Sri Lanka. There are many refinements and improvements still to be made to achieve ful operational implementation. The groundwork established and breakthroughs made under the Water Management Project need to be capitalized upon with further applied research under the ISM Project to re&ch the next range of refinements and improvements. This next generation of refinements and improvements, when coupled with legal breakthroughs from the legislative bodies, will have great sig nificance for the ISM outcomes of increased yields, incomes and rural employment.
16 G. Personnel Requirements
The contracting entity would require the following:
n" Duration (etch) Qualfication 1. Principal researcher* ) (36 months) Ph.D. - Sociology or MS and 5 years experience 2. Senior researcher* ) (24 months) MS and 3 years experience
3. Junior researchers* 4 (36 months) B.S. in sociology plus organization experience 4. Process documentors* 4 (36 months) B.S. in sociology
5. Data analyzer* 1 (36 months) "A" level
6. Consultant-social 1 (12 months) Ph.D.-research record in sci enti st* farmer pa rti ci pati on 7. VMS-social scientist*** 1 (12 months) Ph.D.-research record in participation projects 8. Institutional organizers** 45 (36 months) As per research design
Employed by the contract institute or university in Sri Lanka * Contractual employees of Irrigation Management Division *** Water Management Synthesis - FO consultant
H. Material Requirements
The material requirements include dictation and transcribing equipment# typewriters, photocopy machine, and supplies.
I. Location Requirements
The location requirements coincide with the ISM sites in Polonnaruwa where four tanks and one diversion system allow the test ing of alternative personnel assignment intensities or duration of assignment for the phases of organization or level of institutional organization qualification and training.
17 1' J. Method of Arrangement
Contract with research institute with proven capability in farmer organizational research. K. Potential Research Collaborators
Leadership: Agrarian Research and Training Institute Cooperation: Irrigation Management Divisions MLLD and Water Management Synthesis II
18 IV. PROSPECTUS: INTENSITY OF SYSTEM MANAGEMENT
A. Research Topic
Intensity of Irrigation System Management: Personnel Training, Assignment and Effectivwness.
B. Background
The Gal Oya Left Bank Scheme represents a modern, rice growing, gravity irrigation system that has been structurally upgraded using the concept of pragmatic rehabilitation. At the conclusion of the current Water Management Project in 1985, the system will have measurement and control potential at each major bifurcation point and head control structure. At the same time the personnel for irrigation management (operations and maintenance) have varying degrees of training, intensities of assignment and consequent effectiveness. These personnel are most important in the day-to-day interfacing with farmers and include the technical assistants (TA), the work super visors (WS) and the patrol laborers (PL) or irrigation gate operators. Because of steady attrition to other jobs, a number of these TA, WS and PL positions are vacant in the Gal Oya Left Bank. With a careful selection of areas of responsibility of the TA, WS and PL for their background, training previously received, areas that they cover and other relevant characteristics, the retention of the current field staff structure and intensity would allow a monitoring of their per formance and consequent system performance to indicate some important personnel parameters for further application in the Irrigation System Management Project. C. Objectives
The objectives would be to answer the following research question's:
1) What are the personnel performance parameters that most highly correlate with the irrigation system performance in terms of productivity, efficiency, and relative equity In access to water?
2) How do these highly correlated, and hence, important personnel performance parameters relate to the training received. area of assignmen1-. other personal characteristics of the TA, WS and PL?
3) What lessons for personnel management arise from the findings on the sample TA, WS and PL performances?
4) What tools and facilities would be required to make these personnel more effective?
19 5) What personnel selection characteristics and training needs need to be adjusted by the ID in selection and GITI in cur riculum of personnel?
6) What is the optimal area for assignment of TA'sp WS's and PL's? D. Timetable
1986 Fiscal Year: - Site selection for variability in personnel characteristics - Participant observers trained and fielded
1987 Fiscal Year: - Annual review and wor!plan - Preliminary findings and field adjustments
1988 Fiscal Year: - Annual review and workplan - Preliminary findings and field adjustments
1989 Fiscal Year: - Annual review and workplan - Cumulative findings
1990 Fiscal Year: - Annual review and workplan - Final report preparedo reviewed and finalized - Workshop to present and analyze findings
E. Outputs The outputs would include:
1) A definition of the personnel performance characteristics that directly &ffect irrigation system performance. 2) A statement of how these personnel performance indicators related to the training they have received and teir area of assignment. 3) A statement of lessons for each of three personnel categories on what the improved training needs are, what tools and facilities are needed, what the area of optimal assignment is, and how the irrigation department could make improved personnel selections.
4) A revision to the Irrigation Department's personnel manual and personnel procedures.
5) A workshop to discuss results and implications for person nel management to improve irrigation system performance in Sri Lanka.
20
/ F. Significance to ISM Project
The lessons learned on improved system personnel management would have an important impact on implementation of improved opera tions and maintenance (O&M) procedures in the ISM. The essential structural improvements alone cannot result in the full potential of irrigation performance improvement; i.e., irrigation systems don't manage themselves. Only with properly selected# adequately trained, and appropriately assigned personnel can irrigation systems reach their true performance potential. Understanding the impact of person nel management and making adjustments based on these findings can have important outcomes in the overall ISM assessment.
G. 'Iersonrkl Requirements
The contracting entity would require the following:
N. Duration (each) Qflfition 1. Principal researcher* 1 (60 months) Ph.D. - management
2. Junior researchers* 1 (60 months) B.S. + 3 years experience 3. Process documentors* 3 (60 months) B.S. - management
4. Data analyzer* 1 (60 months) "A" level
5. Consultant* 1 (12 months) Ph.D.-management 6. WS-social scientist or 1 (12 months) Ph.D.-management management specialist**
* Employed by the contract IJnstitute or university in Sri Lanka * Water Management Synthesis - management consultant
21 H. Material Requirements
The material requirements include dictation and transcribing equipment# typewriters# mimeographing machine, and supplies. I. Location Requirements
The location requirements coincide with the Gal Oya Left Bank Scheme since the pragnatic rehabilitation will have been completed and measurement and control will be possible throughout.
J. Method of Arrangement
Contract with a research or development institute with proven personnel research capabilities. K. Potential Research Collaborators
Leadership: SLIDA, MARGA, or ARTI
Cooperaton: Irrigation Department and Water Management Synthesis -Special Studies Focus on Management
22
t , •!/ V. PROSPEClJS: IRRIGATION FEE POLICY RESEARCH
A. Research Topic
Irrigation Service Fee Policy Issues: Incentives for Payment and Accountability of Expenditure and Performance
B. Background
Irrigation service fees are being charged to farmers in Sri Lanka for the first time in Yala 1984. Disappointing experience and success with water service charges have been mixed in a number of nations in southeast and south Asia. The range of behavior is from "free riders" who pay little to nothing for the water service received and who usually have an abundant water supply to the "conscientious payers" who feel that by making full payment they will better ensure a reliable supply, when payment can have little effect. The announced intention of the government is to ultimately make farmers responsible for all operations and maintenance costs. With this above listed range of possible farmer response to the government institutions, a significant area of policy research is opened up relative to 1) the real incentives that farmers have for service fee payment, 2) the procedures and bookkeeping practices used in applying collections to the needs for maintenance in the area where collected, 3) the account ability of irrigation personnel to farmers for expenditure of funds and 4) the corresponding system performance when collections and maintenance activities vary widely. If farmers are to have sole responsibility for financing maintenance, and collections remain low as initial returns would indicate, then the set of incentives for payment, accountability for expenditure, and resulting irrigation system performance will have great bearing on outputs and outcomes of the Irrigation System Management Project.
C. Objectives
The objectives of the irrigation service fee policy research include the following:
1) What are the farmers' incentives and disincentives in the current system of fee payment and collection?
2) What are alternative incentives that would merit con sideration for adjustment by the GSL to improve the rate of collection?
3) What are appropriate collection systems and bookkeeping procedures that would have an impact on collection performance?
23 4) What are appropriate expenditure systems and procedures that would positively influence the rate of collection? 5) How do collections relate to system performance and what policy directives would have an impact on performance and ultimately irrigation service fee collections? D. Timetable
1986 Fiscal Year: - Develop workplan - Train observers and data gathers - Collect data and analyze
1987 Fiscal Year: - Annual report, review and workplan - Collect data, analyze and field adjustments - Draw initial conclusions
1988 Fiscal Year: - Annual report, review and workplan - Collect data and analyzed field adjustments - Draw initial conclusions
1989 Fiscal Year: - Annual report, review and workplan - Preliminary conclusions reported - Collect data and analyze 1990 Fiscal Year: - Annual report, review and workplan - Collect and analyze data - Final report and review - Workshop on results
E. Outputs The output would include:
1) An increased awareness of the policy implications of GSL decisions on irrigation service fees.
2) A report indicating
a. incentives and disincentives of the current system,
b. alternative incentives for improving collections, c. appropriate collection systems and procedures to increase collections,
d. appropriate expenditure systems and procedures to increase collections, and
24 e. the relationship between irrigation system performance and fee collection and the effect of alternative policy directives on accountability of system personnel to the farmers as means of increasing fee collection.
3) A workshop to discuss and compare results with MLLD and ID officials.
F. Significance to ISM Project
The irrigation service fee collection issues and performance over time will have a great impact on the availability of money to maintain the irrigation schemes after rehabilitation and essential structural upgrading have been completed. The exploration of policy issues and alternative approaches will have a long term effect on the sustained quality of operation of the irrigation schemes as set out as an objective of ISM. If collections go sour and money is not found from other sources to sufficiently maintain the upgraded systems, then Sri Lanka will not break out of the vicious rohabilitation degradation-rehabilitation cycle and will continue to incur large external loans to periodically renew systems, whereas annual' main tenance vould cost much less in the long run. G. Personnel Requirements
The contracting entity would require the following:
No. Duration (each) Qulificaion
Principal researcher* 1 (60 months) Ph.D. - economics
Principal researcher** 1 (60 months) Ph.D. - economics
Senior scientist** 1 (60 months) M.S. - economics
Junior scientists** 2 (60 months) B.S. - economics
Intervlo*sers** 4 (60 months) "Al level
Data analyzer** 1 (60 months) "A" level
Consultant - management** 1 (60 months) Ph.D. - Management anj Policy Research
* Permanent expatriot staff of IIMI working part-time on project activities ** Project employees paid under research contract
25 H. Material Requirements
The material requirements are as follows dictation and tran scribing equipment# typewriterso supplies# and expendables. I. Location Requirements
The location requirements are not restrictive as the contract researchers will need to look throughout Sri Lanka to find diversity in the percentage of fee payment, methods, type and rate of expenditure, and accountability of performance of Irrigation Department personnel influencing the rate of fee collection.
J. Method of Arrangement
Contract with an International Research Institute in Sri Lanka. K. Potential Research Collaborators
Leadership: International Irrigation Management Institute (IIMI)
Cooperation: Irrigation Department and Irrigation Management Division.
26
t. VI. PROSPECTUS: STRUCTURAL MANAGEMENT COMBINATION COMPARISON
A. Research Topic
Performance comparison for several combinations of structural and management investments in the Irrigation System Management Project.
B. Background
The Irrigation Systems Management (ISM) Project introduces a significant departure from traditional donor supported rehabilitation of irrigation systems. The "major rehabilitation" practice is a high cost attempt to return the system to the original design standard or a new design standard, which costs close to $400 per acre ($1000 per hectare) of land served by the system. The "pragmatic rehabilitation" practiced in the Water Management Project at Gal Oya Left Bank Scheme was in the neighborhood of $150 per acre ($300 per hectare). The "essential structural improvement" of the ISM is projected to cost $80 per acre ($200 per hectare) and with management improvements added would still cost only $120 per acre ($200 per hectare). The underly ing management improvements include the INMAS Project manager system; the financial management system; introduction of monitoring, evalua tion and feedback system; operations and maintenance; and farmer organizational enhancement.
The four tank schemes and one diversion scheme in Polonnaruwa District would have ESI plus the full management package listed above. The Ridi Bindi Ela Scheme in Karunegala District would have just the management package above, and the Hakwatuna Oya Scheme would have only the INMAS Project manager system. The implementation plan is shown in the attached figure.
27
"/ >1 LOCATION Kurunegala Districts: Kurunegala Districts: Polonnaruwa Districts: Amparai District: Amparai District: Site Hakwatuna Oya Ridi Bendi Ela PSS Tank Gal Oya - Right Gal Oya - Left Minneriya & Giritale Kaudulla
Pragmatic Pragmatic Rehabilitation Rehabilitation
, Improvement
CD Management/Imple. Management/Imple. Management/Imple. Management/Imple. Li -Financial Mgmt. -Financial Mgmt. . -O&M Improve. -O&M Improve. -O&M Improve. -O&M Improve "'I -Monit., Eval. & -Monit., Eval. & -Monit., Eval. & -Monit., Eval. & Feedback Feedback Feedback Feedback -Farmer Organi- -Farmer Organi- -Farmer Organi- -Farmer Organi zation zation zation zation
INMAS INMAS INMAS INMAS INMAS Proj. Mgr. System PM System PM System PM-System PM System
Figure F-2. A "Learning Process" in MLLD. With this range of implemented project inputs and complemented by several cases of major rehabilitation from MIRP, a tremendous opportunity arises for the MLLD, IMD, and ID to learn from comparative case studies of the costs and benefits of these various investments.
C. Objectives
The objectives of the comparative study on structural and management combinations of the ISM Project include:
1) What are the detailed management and structural inputs and their corresponding costs of implementation?
2) What is the performance of each level of investment in the period of project implementation, constraints to implementation, and lessons for future implementations.
3) What are the benefits from each combination of structures and management up to the end of ISM project and as projected into t.ie future.
4) What are the optimal combinations of structures and management and relative implementation schedules appropriate to irrigation improvement needs of Sri Lanka?
D. Timetable
1986 Fiscal Year: - Site selection for variability in personnel characteristics - Participant observers trained and fielded
1987 Fiscal Year: - Annual review and workplan - Preliminary findings and field adjustments
1988 Fiscal Year: - Annual review and workplan - Preliminary findings and field adjustments
1989 Fiscal Year: - Annual review and workplan - Cumulative findings
1990 Fiscal Year: - Annual review and workplan - Final report prepared, reviewed and finalized - Workshop to present and analyze findings
29 E. Outputs
The projected outputs would include:
1) A report on treatment combinations of structures and management with respect to
a) costs of implementation b) performance during implementation c) constraints to implementation d) benefits measured during e) benefits projected into future f) internal rate of return for improvements.
2) An increased awareness in the MLLD, IMD and ID of the need to select a combination of structures and measurement that is appropriate to Sri Lanka's needs, resources and capabilities. 3) A workshop and proceedings detailing the evaluation and discussion of study findings. F. Significance to ISM Project
The lessons available from the comparative treatments of structural and management combinations would have a major potential affect on. Sri Lanka's future investment strategy in irrigation improvement. If the results were favorable for some intermediate level of structural upgrading with heavy use of human and management resources, the GSL could potentially save tremendous amounts of scarce, hard currency committed to loan repayment for major rehabiliation. Such an outcome would have major implications on the investments made to in-service training of personnel and the develop ment of management tools appropriate to Sri Lanka. G. Personnel Requirements
The contracting entity would require the following:
No, Duration (each) Quification Principal researcher* 1 (60 months) Ph.D. + 5 yrs. experienc
Senior scientist* 1 (60 months) Ph.D. + 3 yrs. experienc, Junior scientists* 2 (60 months) M.S. + 1 yr. experience
Interviewers* 2 (60 months) B.S. econ. or engr. Data analyzers* 2 (60 months) "A" level
30
,, Consultant managjment* 1 (15 months) Ph.D. - irrig. system mgmt.
WMS - irri. mgmt 1 (12 months) Ph.D. - irrig. system mgmt.
ISM - deputy directors*** 4 (60 months) As assigned by IMD/ID
a - Monitoring, eval. & feedback b - Financial management c - Operations and maintenance d - Farmer organization
* Employed by contracting research institute or university in Sri Lanka ** Water Management Synthesis special studies mu* Employees of IMD and ID assigned to the ISM Project
H. Material Requirements
The material requirements include dictation and transcribing equipment, typewriters, supplies, and exnendables. I. Location Requirements
The location requirements are fully met by the eight schemes included in the ISM Project plus two schemes implemented under the MIRP for major irrigation rehabilitation comparison. This comparison of the impact of structural and management combinations on system performance is one of the central "learning opportunities" provided by the ISM Project. J. Method of Arrangement
Contract with research institute with proven capability in eval uation research. K. Potential Research Collaborators
Leadership: ARTI, MARGA or SLIDA
Cooperation: Irrigation Management Division, Irrigation Department, Water Management Synthesis Project
31
)(Jf\ VII. PROSPECTUS: INDIGENOUS IRRIGATION MANAGEMENT LESSONS
A. Research Topic
Indigenous Irrigation Management Precedents: Lessons from Farmer Managed Tank Systems.
B. Background
The history of irrigation in Sri Larska is perhaps as long as any other country in Asia. Irrigation works dating back thousands of years are not uncommon. In addition, the 25,000 snall tanks in Sri Lanka that are managed by farmers represent a situation of wide rang ing importance to irrigation in the 1980's and 1990's. With this history and with so many tanks currently managed by farmers, the sheer numbers would indicate that there must be some important lessons and precedents for modern irrigation management strategies that attempt to bring farmers into management partnership with the irrigation bureaucracy. A number of in-depth case studies would provide lessons from the past and allow the development of training materials appropriate to the present times without forcing "the wAeel to be reinvented" every generation or so.
C. Objectives
The studies on historical precedents and management of tanks by far'mers would have the following objectives.
1) WhaL are historical precedents for management of irriga tion systems with regard to rules of allocation, priorities among users, maintenance responsibilities, resolution of conflicts over water, and other pertinent matters dealing with management?
2) What are lessons from current day management of small scale tank irrigation schemes rules of allocation, priorities among users, maintenance responsibilities, resolution of conflicts over water, and other pertinent matters dealing with management?
3) Who are the key actors in management, what &re their personal characteristics, how did they get involved, how were they selected, and other questions relative to the current management of irrigation in small scale tank schemes in Sri Lanka; and what are the lessons for the ISM Project?
32 D. Timetable The duration suggested is five years. It is expected that three subprojects would occur under this topic, one in each of three dry zone provinces where irrigation has a history and current day reality in the hands of farmers. It is suggested that each contract ing unit produce one historical and tF ee modern day case studies and analysis per year for each of the five years of research sponsored undejr the ISM project.
E. Outputs The study outputs would include:
1) Fifteen case studies with corresponding analysts of his torically relevant irrigation schemes with emphasis on implications for modern irrigation management and the ISM Project and FO component. 2) Forty-five case studies with corresponding analysis of current management practices of small scale tanks by farmers and farmers' organizations with emphasis on implications for the ISM Project FO component.
3) Increased awareness among the irrigation research, training, implementation and administration communities of the sig nificant historical precedents and advantages that farmers have to offer as co-manaoers of irrigation systems. 4) A workshop to discuss implications of the findings on historical precedents and farmer management. F. Significance to ISM Project
The ISM Project focus on farmer organizations requires much further input. Many historical precedents are to be found in old systems and records of their operations and current day prartices of farmer organizations in small scale tanks. A steady input of detailed case studies, analysis, and implications can feed the evolutionary process of developing more effective farmers' organizations and irrigation systems that are more responsive to farmers' needs. G. Personnel Requirements
Each contracting entity would require the following: h" Duration (each) Qualifications
1) Principal researcher 1 (60 months) Ph.D.-management
2) Junior scientist 1 (60 months) MS-management
33 3) Interviewers/data collectors 2 (60 months) BS-management
4) Data analyzers 2 (60 months) BS-management
5) Consultant 1 (12 months) Ph.D.-management o MS + 10 yrs. exp
H. Material Requirements
The material requirements are as follows dictation and transcribin equipment, typewriters, supplies# and expandables. I. Location Requirements
The location requirements are not restrictive as the contract rasearchers will need to look at small tanks run by farmers throughout the dry zone of Sri Lanka. Geographical specialization among the three potential research contractors would be appropriately assigned by the IMD coordinating committee. J. Potential Research Collaborators
Leadership No. 1. - AT.TI Leairship No. 2. - SLIDA Leadership No. 3. - MARGA
Cooperation: Irrigatio.n Management Division of MILD
34 VIII. PROSPECTUS: IRRIGATION MANAGEMENT INFORMATION CENTER
A. Research Topic
Management of Irrigation in Sri Lanka Tank Schemes: Information Collection, Data Bank Creation and Development of Annotated Bibliography
B. Background
Much information already exists in Sri Lanka about tank irrigation management, but it is often unknown or unavailable to many potential users. The information may be in historical archives, university libraries, government files, and personal collections of individuals. Much effort is required to bring this all together under one roof and into one information system for ready access for researchers, managers and administrators. A systematic effort to collect this information, create a dat. base from irrigation depart ment files and previous research studies and the production of an annotated bibliography would facilitate irrigaticn research and development in Sri Lanka.
C. Objectives
The objectives would include:
1) What are the information sources, types and content on all aspects of irrigation management that should be collected for an irrigation information center?
2) What is the structure of the data base and its content for rapid access to irrigation statistics, data from previous research studies and other relevant matters to be of use to interested researchers, managers and administrators in Sri Lanka?
3) What is the structure and content of an annotated bibliog raphy on all aspects of irrigation management as a product of the irrigation information center?
D. Timetable
The timetable for this support project is two years duration. During this time information collection, the creation of a micro computer based information storage and retrieval system, and develop ment of an annotated bibliography un major irrigation system manage ment topics should proceed.
35 E. Outputs
The outputs of the study would include:
1) A library of irrigation management information.
2) A data base of irrigation statistics and data based in a micro-computer information system.
3) An annotated bibliography on all aspects of irrigation system management.
4) An increased awareness among various interest groups of the irrigation community of the information sources available and how to use them.
5) A workshop to discuss the information center findings and methods of further adding to the collection.
F. Significance to ISM Project
The further tiiprovownent of irrigation attempted under the ISM Project should have the benefit of knowledge of what has transpired earlier. I,., administrators and managers of ISM should have instant access to a micro-computer based data system via telephone connections. As the art of irrigation management evolves, a greater appreciation for the lessons learned elsewhere will reside with the persons who have access to relevant information. The assistance to an irrigation informaticn center provided by the ISM Project will pay off in the life of the ISM Project in innovative adaptation to *Lhe infor mation available.
G. Personnel Requirements
The project would require the following personnel-
ED. Duration (each) QljjjjificLati n Principal researcher 1 (24 months) M.S. + 5 yrs. experience
Junior researcher 1 (24 months) M.S. + 3 yrs. experience
Data collector 1 (24 months) B.S. + 1 yr. experience
Consultant-data mgmt. 1 (12 months) Ph.D. - data management ot computer information sy
36 H. Material Requirements
The material requirements would include dictation and tran scribing equipment, data storage and retrieval systems, typewriters and word processors, supplies, and expendables.
I. Location Requirements
The data sources would come from all corners of Sri Lanka in schemes where irrigation is currently or has been practiced in the past, in institutions where irrigation research is currently or has been conducted and in organizations where irrigation management train ing is currently or has been conducted. The center of information collection should be in Colombo.
J. Method of Arrangement
Contract with existing research institute/information center with proven capabilities.
K. Potential Research Collaborators
Leadership: ARTT/IMRIC
Cooperation: Irrigation Department and Irrigation Management Division
37 ANNEX G: LOGICAL FRAMEWORK &tl ,US Fundlngi $|9.0million,6
Project Title and lbert Irrigation Systems Management (313-0080) Date Revised: December 3, 1904
Narrative turv €lietlvelv Verifiable Indicators Huns of ftrificollon Import nt Assaiiinl
Pr c turas of goal fh levmenti Goa1 iad emi goal AsoU±JM
Agricultural development that: 1) Production 20 higher than 03L rep s compared to bencdeark 1) 6SL will continue to en national averag, for Irrigated paddy studieA and annual GSL national courage domestic foodproduction. I) Increases domestic food lands. en ,celtural statistics on 2) Irrigation water supplies production In project sites. 21 Rate of amployment In project I yields, production, acreage, will approach historical average 21 expands employment In sites 102 over the national average ead cropping Intensityl in project aites. project sltf,, and Increase for Irrigated paddy lands. 2) ruralamploymsntIand 3) Other production input3 3) Improves the net, far 3) Nat farm family Incoe In pro- 3) rural Incme. seacias seoe.fortlifz r and family Income In project sites ject sites greater than national credit are available In project average Increase for Irrigated lands. aites. at rates higher thin the Ratiosil 4) GSL policy will support overage Increase for Irrigated management and dsentlal struc lands. tural improvements In the lIM Project sites.
Prplact PusrIoe Rasurs of Purpose Achlevmnta Parses Verif'eatf Purees* Astemtio To develop In the nation, district (bantitativo improvements is the 11 65L reports 1) 31 will Insvitutionalize (range), and Ie4ASproject, an in- a) annual the enhancement of domistc stitutional capability to Increase 1) policies, rules and regulations b) mid-project food production. food-crop production on editing to ensure better water managementi €0 final 2) Augmented rater supplies Irrigated lands through is.)rovod 2) to structures and in 0 M procn- continu" as endar Mahvell freee management and structural Improve- durns satained in project schemiol 21 Oarterly GS. Implementation work in Polonnarvei sites. ment In selected irrigation schems end reports of each scheme V7 The project managtoeit will In Polonnaroa and Amparal Districts. 31 to project mnaw""t (financial. 3) Project managment reports i- effectively bring togetherthe monitoring, and contractual obliga- cleding Inputs of production. tions). a) finances 4) 0SL will institutlonallise b) monitoring A evaluation management and essential stuc c) contrectural traising & tUral Improvements. research
b~alaWanitlvd of Wae Q-nt VsnIfintin aKtaiJ zmmltm In Project ochmit 1) 00 procederee institwtemal lzm If flesly Operations 0d eseomal I) Cosltants recmmendations with weekly operations and regular maintemance reports. on 0dM are feasibleand adopted. I) l sr vd aperatiams had mointe- seasonal malteamce. 21 JIpreved Stroctures 2) Eeseatil atructeral in asoce for Istulled Irrlati e sy- 2) Esseetial strictural improvent muaIs chaemel - miles, proviment to control. measurment Sms uperation completed 1. 1ie,Irasch. mad distri- bibrmch CIauael miles. sad conveyance devices follow 2) Essential structural improve- betay chnmile of five schemes. cidistribhtary chdnel - miles. schedule, with GSL comitllt t to ment camplated I 3)I iancial maeno t system pro- dlit - major atructeres femd releases upkeld. 3) Improvead flnancial management ducalmonthly, seasonaland annual 3) Financial management systm pro- 3) 6L sustains comitment system Institutedi financial rmports. duces ionthly. seaasal and annual to Implemnt financial managn nt 4) 14onitoring,evaluation and feed- 4) Monitoring. evaluation and reports on each scheme on micro- system on ilcro-ccsuters. bach system Inatitutedl and feedback system produces weekly opera- computers. 4) 631 sustains cinl1aent to S) Farmer organizations established tionsreports and monthly project 4) Monitoring, evaluation and monitoring. evaluation nd feed on field channels, federated at dis- managment raports. feedback system produces weekly back system. tributary channels. 5) Farmer organization'a assume 004 operatloas reports for each scheme and S) G3L sustains cmitaent to Alsot reponuibility and asthority in five acheme aadmonthly mangemant report farmer participation In 0&1 at schAm on field channels, for each project. field channels. 6) Trainleg capability Increased, 6) Training produces trainees at S) Farmer initiative Improves004 6) Training contractors capa and GITI, PASE. ARTI. SIDA. of field chanmels. ble of rompleting contracts. 7) Research capability enanced. 7) Research produces 6 Policy. 6I Training reports sod evaluation, 7) Research contracts for caps Practical and Dat Base Research 71 Research reports 4 evaluation ble of completing contracts. Results. workshops. j00uj Magni tude of IR0notsmu Uj±rijiatanInu±1m-t 1. GSL (Incremental) Personnel, 131 1) Adequate GS personnel and a. Personnel 1) Polonnaruva II Ouartarly persomel Implemetatioe adequate funding provided ac - Technical assistants sad 27 technical assistants reports. cording to preetermlned re work supervisors at 27 work supervisors 21 Omrterly expenditare reports. leases. Poloonaruva. 2) Gal Oya Um 2) Suitable technical sals - Staff at Gal Oya Projseted staff 11 Technical assistance contractor tance, team selected. end con b. budgets for Polonnarwa and Personnel budget for 5 years, quarterly reports. tracted L fielded and budget Gal Oys S259.200 at Poloenarwa 1I USAID quarterly implementation allocated & available as 2. USAID S1,200,000 at Gal Oya reports, planned. - Long and sho, t-term technical USAID technical assistance team [raini 3) Local and overseas training assistance teams 1) Long-torm 4,500,000 1i Contractual contractors selected and engaged - Long and short-term budgets 2) Short-tarm 11,0 - coatracts awarded and K LD trainers propared. 3. Training Total 15,640,000 - annual report & review 4) Applied research and policy a.Contractural Training - tralnees evaluated on the job studies Identify constraints b. 8LD entities 1) Contractural 1) S.LD entities and feed needed Information In c. Overseas - SLIDA $171,000 - annualreport A review to program to adapt to 4. Applied research and policy - MT) 1207.000 - trals evaluation on the job changing circumstances. studies by contract. - U0P 1 64,000 3) Overseas - U0M1 SO.000 - annual report 9 revimw 2) 5WLD - trainees as trainers evaluated - GXTI 1307,000 Anlied research and nolicy - PASE 1300,000) ) contracts awarded 3) Overseas 2) annual report 9 Internal review - GIT 1250,000 3) annual worhplan approved - PASE $250,000 4) final report approved - NRTI 1 40,000 5) workshop hold In IO - SLIDA 1 40.000 4) Applied research and policy studies - $1,597,000 available for 0 suggested topics to directly affect or draw lessons out of the ISM Project.
4'I I [p Annex H: LONG-TERM IRRIGATION SYSTEM INVESTIGATIONS POLONNARUWA DISTRICT
Larry Nelson*
The Government of Sri Lanka (GSL) and the USAID mission to Sri Lanka, in conjunction with the Water Management Synthesis II Project have conducted three Diagnostic Analysis of Farm Irrigation Systems Workshops. These in-country, professional development workshops were designed to introduce participants to the concept of interdisciplinary problem identification. As part of the training workshop, par ticipants use the principles and procedures of diagnostic analysis to investigate an existing irrigation system, identify constraints, and discuss various approaches to solving irrigation related problems. The outcome of these workshops is generally prepared as a report and distributed to the respective agencies and organizations within Sri Lanka. These reports included investigations of the Rajangana irriga tio- scheme (1982), System H of the Mahaweli (1982), and System H of the Mahaweli (1983). Although these reports are limited in scope, due to the nature of the training workshop, they have provided useful information and valuable insight into the operation of irrigation systems. As a result, the Ministry of Lands and Land Development (MLLD) ias recognized the benefits of this investigative approach and now seeks to institutionalize these concepts as a practical, prelimi nary approach to irrigation improvement projects. As a demonstration of its commitment, the GSL created the Irrigation Management Division (IMD) within the MLLD. In addition to other responsibilities, this division will be primarily responsible for establishinig and institutionalizing the concepts of diagnostic an3lysis.
During this same period, the MLLD and USAID conceived the idea of the Irrigation Systems Management Project (ISMP), for which J rIi was prepared in 1983-84. The PID identifiea four major irrigation schemes for improvement, including: Parakrama Samudra, Giritale, Minneriya, and Kaudulla. Although the ISMP is not scheduled to begin until 1986, the USAID mission agreed to provide prior financial and technical assistance to the MLLD in order to conduct preliminary investigations of these irrigation schemes. These initial studies
Research Scientist, Colorado State University and Water Management Advisor, Ministry of Lands and Land Development, Sri Lanka.
1 will provide a detailed background which will identify and prioritize constraints of the four irrigation systems. Principal responsibility for these investigations will rest with the newly created IMD. In addition, the Water Management Synthesis II Project will provide the IMD with supplemental short-term technical assistance and training upon request. Special Studies on topics within the scope of the field studies may also be conducted by WMSII. The overall purpose of these combined activities is to provide a more concise and complete knowledge of the four irrigation systems. This type of information will greatly assist the ISMP in making decisions regarding the implementation of its activities.
Objectives of the Long-Term Irrigation System Investigations
The objectives of the long-term irrigation system investiga tions of Parakrama Samudra, Giritale, Kaudulla and Minneriya irriga tion schemes are:
1. To strengthen the institutional capacities and associated personnel of the IMD in the use of diagnostic analysis techniques on existing irrigation schemes.
2. To assist the IMD in the establishment of a set of evalua tion procedures for continued monitoring of irrigation system operation.
3. To provide the IMD with detailed information on the opera tion of four irrigation schemes including both positive and negative aspects of systems operation, their magnitude and causes.
Implementation of the Long-Term Irrigation System Investigations
To accomplish the above objectives the Ministry of Lands and Land Development will provide at least one core team of specialists from the areas of off-farm irrigation engineering, on-farm engineering, agronomy, sociology, agricultural economics and women in development.* This team, which will be responsible for conducting diagnostic analysis on the four irrigation schemes in Polonnaruwa, will work through the newly create6 IMD of the MLLD and the Agrarian Research and Training Institute (ARTI). In addition to the provision of office space and computer facilities, ARTI will commit a minimum of three staff members to the long-term irrigation systems investigations. These officers will work directly with the core team in designing and implementing the Diagnostic Analysis procedures.
* The women in development component is subject to funding approval by the USAID Mission.
2
'1) In July-August of 1984, 42 field level officers from 7 govern ment departments in the Polonnaruwa district attended a one month "Diagnostic Analysis of Farm Irrigation Systems" workshop, The workshop provided these officers with many of the skills used in Interdisciplinary investigations of irrigation system operation. Most of these officers will be available to serve as field staff for the long-term studies. They will assist the core team in the field inves tigations and basic analysis of data.
Funding for the long-term irrigation system studies in Polonnaruwa will be provided by the Central Support Component of the USAID funded Water Management Project. The Central Support Component will fund most of the direct costs of the studies through the Irrigation Management Division. In addition, the Water Management Synthesis Project will provide short-term technical assistance and training upon request, and may fund some special studies on topics not covered in the field investigations. Metlods
A two week reconnaissance survey of each of the four irriga tion systems will be conducted during November-December of 1984. The reconnaissance survey will be supervised by the core team with one to two district level field teams assigned to each irrigation scheme. The reconnaissance survey will provide basic information for planning the detailed investigations on each of the schemes.
Detailed field investigations of Parakrama Samudra and Kaudulla irrigation schemes will begin in January of 1985. The field investigations will be expanded to Giritale and Minneriya irrigation schemes in Yala of 1985, provided that sufficient personnel and logis tical support is available. Investigations conducted during the 1985-86 Maha season will be integrated with the Irrigation Systems Management Projects monitoring and evaluation component.
The detailed irrigattion system investigations will be super vised by the core team, with from three to four teams of district level field officers involved in field level data collection. Since data collection will be similar for each irrigation scheme, Parakratna Samudra will be used as an example in the following description of the detailed study methodologies.
Parakrama Samudra will be arbitrarily divided into head, middle and tail main channel regions for the detailed studies. Each field teem will be responsible for detailed investigations of the three regions in one or more reaches of the main channel. Within each sample area, it will be necessary to further restrict detailed studies to several turnouts located at the head, middle and tail regions of one or more of the secondary channels.
3 During detailed studies, each component of the diagnostic analysis field studies will collect specific types of information. summary of the types of information collected by each conponenit follows.
Off-Farm Engineering: This component of the field studies will describe the water delivery system from the tank to the field channel turnout &nd compare actual operation with the designed operation. Some of the more important measurements that will be made are:
1. Detailed assessments of irrigation structures, including their condition, throughout the study area.
2. Differential leveling of conveyance channels, including both longitudinal and cross-section profiles.
3. Inflow-outflow measurements to determine water losses in conveyance channel s.
4. Flow measurements in conveyance channels during each issue period to determine water delivery throughout the system.
5. Interviews of the operatinal staff and farmers to obtain specific information revarding the operation and main tenance of the system.
In addition, the off-farm engineering component will provide assistance to the on-farm engineering component in measurements of the water application system and water removal system.
On-farm engineering: The on-farm engineering component will describe the water application system and water removal system at, and below, the field channel level. The actual operation of the water application system and water removal system will be compared with the designed operation. Some of the more important measurements that will be made are:
1. Detailed assessments of the irrigation structures within the field channel turnout. 2. Differential profiles of field channels, including both longitudinal and cross section profiles.
3. Differential leveling of several fields within turnouts.
4. Discharge measurements at the head of several field chan nels for several issue periods.
4 S. Inflow-outflow measurements of water loss within several
field channels.
6. Irrigation applications on several fields within turnouts.
7. Detailed assessments of the condition of drainage channels.
8. Inflow-outflow measurements within a turnout.
In addition, the on-farm engineering component will assist the off-farm engineering component in measurement of the water delivery system.
Agronomy: The agronomic component will be responsible for describing the cropping system. This information will be compared with current information on soils and crops. Some of the more impor tant measurements are listed below.
1. A description of the soils within each turnout using methods described by the United States Soil Survey.
2. Determination of salinity and alkalinity problems through measurements of soil pH and electrical conductivity.
3. Soil fertility will be assessed indirectly through plant tissue testing of selected fields throughout the growing season.
4. Visual assessments of the farmers management practices throughout the s.ason.
5. Measurements of crop stands, weed populations, and visual assessments of disease and insect infestations.
6. Identification of the crop varieties sown by farmers within a turnout.
7. Measurement of available soil moisture between irrigation applications.
8. Crop yields at the end of the cropping season.
In addition, the agronomy component will assist the on-farm component in the measurement of irrigation applications, and assist the women in development component in the identification of crops and agronomic problems in the homestead gardens.
Economics: The economic component will delineate economic problems, identify linkages between economic and other constraints, social, and economic constraints. Questionnaires will be the primary tool used by the economic component. However, because most farmers do not maintain systematic farm records, interviews with sample farmers will be conducted at least three times during the cropping season, in order to key-in on specific activities occurring at that time. Some of the more important information obtained in these interviews is listed below.
1. Cropping pattern and intensity.
2. The availability and cost of credit to the farmer.
3. The development of farm budgets for the various crops grown i the study area.
4. Production levels obtained by the farmers in the study area.
5. Assessment of marketing facilities.
6. Additional sources of income received by the farm family.
In addition, the economic component works closely with the sociology and women in development compone its in structuring the questionnaire and coordination of the interviews.
Women in Development: The women in development component is responsible for describing the interaction of women and the irrigation system. Questionnaires will be the primary tool uscl by the women in development component. In order to key-in on specific activities, farm women will be interviewed at least three times during the crop ping season. Some of the more important information to be obtained is listed below.
1. Gender specific activities associated with irrigated crop production.
2. The perceptions of farm women regarding the operation of both the irrigation and domestic water system.
3. The availability of irrigated and non-irrigated agricul tural extension to farm women.
4. The decision-making process concerning the allocation of household resources.
5. The participation of women in community and water-user organizations.
6. The contribution of the home garden to family income.
6
1 6. The contribution of the home garden to family income.
sociology and economic components in questionnaire development and coordination of interviews, the 9Sjo1ggy: The sociology component will examine the social and cultural structures and relationships that exist within and between the suppliers a;d users of irrigation water. Participant observation, open-ended informal interviews and formal interviews are the primary tools used by this component. Some of the more important information to be collected is listed below. 1. The farmer's perception of irrigation and production probl ems.
2. The availability and utility of institutional services.
3. The organizational structure existing within the irriga ti on system. 4. How water allocation/distribution is accomplished. 5. How conflict is managed.
The sociology compontnt will also work closely with the women in development and economic components in structuring the question naires and conducting interviews.
Interdisciplinary Teamwork: The diagnostic analysis approach stresses that all team members, regardless of individual expertise, must observe, measure, and analyze the operating system within an informed interdisciplinary frame of reference. To assure that the interdisciplinary frame of reference is maintained throughout the study, continuous interaction and collaboration within the field teams will be required. In addition, contact between the field teams and the core team will insure careful review and modification of the data collection as necessary. While basic tabulation of data will be done by the field team, further data analysis and interpretation will be the responsibility of the core team. Basic tabulation and more detailed analysis will be accomplished periodically throughout the study. The results of peri odic data analysis will be discussed with field teams in team meetings and serve as the basis for a continuous formative review process of the study. At the end of the irrigation season, the core team will be responsible for writing a technical report that will describe the operation of the irrigation scheme and document the positive and negative aspects. Based on the study results, an attempt to place a priority for improvements of the recognized constraints will be made.
7 ADplications of the Long-Term Irrigation Systems Investigations
The GSL is committed to the goal of improving the efficiency of existing irrigation systems throughout the country. In order to accomplish this goal It will be necessary to: (1) Increase site specific information on irrigation system operation, (2) involve personnel who are closely associated with the day-to-day operation of the irrigation system, and (3) increase support capability at higher administrative levels. The long-term irrigation systems studies in Polonnaruwa will contribute to the above needs in the following ways. Valuable information concerning the operation of the selected irrIgation systems will result from the collection of a reliable, extensive volume of data. This site specific information will greatly assist the ISMP in determining pragmatic, cost effective means to improve the operation of these schuies. In addition, this information will also serve as baseline data for compar'sons after improvements have been made.
The long-term irrigation system investigations will also improve the professional and interdisciplinary skills of the personnel involved in the studies. These individuals will then be able to improve their performance in their present position, as well as become a resource for the ISMP and other irrigation improvement programs in Sri Lanka.
The long-term irrigation systems studies will emphasize and encourage institutional development of these concepts as the project progresses. ARTI's commitment to the studies will provide the institute with a core group of researchers capable to conducting detailed investigations of other irrigation schemes scheduled for improvement programs. The newly formed IMD will build resources of data, methodologies and personnel from which it can expand and develop monitoring and evaluation programs for other irrigation systems in Sri Lanka. Such programs will provide decision makers with the informa tion required to improve the performance of irrigation systems.
8 Annex I: OPERATIONS AND MAINTENANCE LEARNING PROCESS
by Gaylord V. Skogerboe*
A. Conceptual Approach
An irrigation system can be subdivided into three major subsystems: (a) water delivery, (b) farm, and (c) water removal. The "heart" of an irrigation system is the farm subsystem. The purpose of an irrigation system is to grow food which takes place in the root zone. Water delivery and water removal .ubsystems su ports the food growth.
Even if all three irrigation subsystems have been properly designed, the lack of an adequate technological and institutional framework for operating the system in accordance with the design criteria will likely lead to failure of the system or low agricultural production levels. Generally, operating conveyance facilities has not been related to sustaining long-term productive agriculture.
There is a growing awareness world-wide that improved farm water management practices can be cost-effective in achieving increases in crop production. But, in so many cases, deteriorating irrigation channels and inadequate operating procedures preclude any significant improvements in farm water management practices.
The emphasis in the future will be improving water management practices and increasing crop production on existing irrigated lands. Technology alone will not bring about the necessary improvements. Instead, technological changes and institutional modifications will usually help existing irrigated lands more productive.
For example, it is not sufficient to rehabilitate a network of irrigation channels; the channels must be maintained season-after season so that a dependable water supply can be delivered to e farmer. Likewise, it is not sufficient to just fill the channels with
*Professor, Department of Agricultural and Irrigation Engineering and Director, International Irrigation Center, Utah State University, Logan, Utah 84322 U.S.A. water; flow measurement devices are needed so that irrigation supplies are equiabIyb delivered to eAch farmer. First of all, in order to operate and maintain an irrigation system on a sustained basis, high ranking government officials need to provide the necessary manpower, equipment and budget. Secondli,, the personnel responsible for opera tions and maintenance must provtide farmers with timely and equitable water deliveries.
The operations and maintenance "learning process" provides one technological approach for effectively sustaining an irrigation net work over a long period. This process emphasizes: (a) maintaining rather than rehabilitating; (b) documenting maintenance needs to improve financial management and accountability; (c) using existing flow control structures in irrigation channels for water measurement; (d) developing more detailed physical knowledge about what is occur ring within the system; (e) increasing sensitivity about operating the system to meet the needs of farmers; and (f) documenting the need and costs for future irrigation scheme improvements.
B. Operations
The first step in the operations process is to do a field survey of required essential structural improvements (ESI) for flow control (e.g., replacing gates) and water measurement (e.g., repairing damaged structures or installing new flow measuring device). This operations survey can be done separately or simultaneously with the maintenance survey. In either case, the results of the operations survey are incorporated into the maintenance survey to develop a maintenance plan.
The operations survey is conducted by walking along the full length of the main, branch and distributary channels. Of particular importanca is each division point in the channel network because these are locations where water is diverted from a larger channel into a smaller channel, and the smaller channels' discharge rate should be measured. These division structures should be inspected for necessary cleaning, repairs and replacement (e.g., gates, bricks, etc.). The field inspection results of each structure should be recorded in a fielC book with sufficient detail so that a good cost estimate can be prepared later for necessary maintenance to have thb structure func tion for both flow control and water measurement.
In many irrigation systems, numerous open channel constric tions can be used for measuring water such as drop structures, check structures or flow regulating structures. Many of these structures should be improved (ESI) so that they can function as water measure ment devices. Then, the channel losses between two structures can be measured. Sometimes, measurement will require special operating procedures for 1/2-2 days so that wate- is not diverted between the
2 two structures (unless the water diversions can also be accurately measured). A detailed "Essential Structural Improvements Plan" should be prepared that includes:
1. Physical description of irrigation scheme,
2. Proposed flow measurement program for equitably distributing water supplies, 3. Proposed flow measurement program for evaluating channel losses,
4. Essential structural improvements (ESI),
5. Costs of essential structural improvements, and
6. ESI Implementation Plan.
Once the ESI Plan has been approved, then detailed cost records should be kept of actual expenditures during ESI implementation. This is important for planning similar investments in other irrigation schemes because these costs reflect the minimum investment that should be made in upgrading the irrigation channels' operation. Accumulating this information for many irrigation schemes will allow planners to allocate more realistic funding for upgrading other irrigation schemes.
After making necessary structural improvements, a concerted effort will be needed to develop cscharge ratings for all nf the flow control structures. For the large nain canals and branch canals, a current meter could calibrate each structure; whereas, portable flow measuring flumes can probably calibrate field channel (F-channel) inlet structures, distributary (D-channel) structures would be rated using portable flow measuring .i---ices wherever feasible (other:ise, a current meter would be used). Throughout the project, periodic checks should be made, dnd discharge ratings should be adjusted if necessary which should become a routine operations procedure. Also, detailed field books should be kept to describe the physical condition of the structure and nearby channel each time a discharge rating is made. With periodic maintenance, the discharge r&tIng for each structure will change little. Although this technology is simple, periodic maintenance and attention to details are important in order to have discharge measurements that are accurate within five percent.
After discharge ratings have been developed for each flow measurement structure, channel losses can be evaluated for most of the reaches in the irrigation network. In fact, stage readings collected
3 at each structure prior to developing a discharge rating can be con verted to calculated discharge rates that will be fairly accurate provided there has been no significant changes in channel sedimenta tion or vegetative growth. Channel losses should be measured peri odically throughout each irrigation season to determine the effects of channel water depths and water table depths on seepage rates.
Each tank irrigation scheme needs detailed maps showing all irrigation and drainage channels, along with all cropped lands served by these channels. These maps, along with adequate flow control structures that have been rated for discharge measurement, provide the tools for developing an operations plan. Presently, water delivery schedules are calculated, but the lack of flow control and water measurement structures precludes measuring D-channel and F-channel water deliveries. Consequently, conveyance efficiencies are estimated by "pulling numbers out of the air"; in fact, little field data on actual conveyance losses exist for any of the irrigation schemes in Sri Lanka. The lack of such data has not been important until now because the water deliveries to F-channels have not been measured. Thus, there has been a large disparity in the amount of water delivered to different F-channels.
Implementing the operations plan will provide more equitable distribution of irrigation water supplies throughout the irrigation system because channel losses will be taken into account, and the water delivered to each F--hannel can be measured. Monitoring can improve water delivery schedules as more field data are collected, and those monitoring will be sensitive to what is happening within the system.
To achieve truly equitable water deliveries to F-channels, more information is required to determine water losses and calculate water budgets. As a part of the USAID-funded Water Management Project in Sri Lanka, a weekly operations computer program has been developed for the Gal Oya Left Bank Canal system that consists of three mocels: (a) weekly irrigation requirements, (b) weekly water delivery schedules, and (c) weekly records and seasonal analysis. This model can be rewritten to suit each tank irrigation system in the Polonnaruwa District, as well as the Gal Oya Right Bank Canal system. Then, the computer model can be calibrated for each system by under taking a field data collection program to determine channel losses and irrigation application efficiencies. Channel losses can be determined for many reaches by using the discharge ratings for flow control structures. In other cases, ponding tests will need to be conducted prior to or after the irrigation season or perhaps before and after a scheduled rotation period. F-channel losses can be determined using the rated F-channel inlet structure and portable flow measuring device(s). Irrigation application efficiencies would be field measured on a relatively small sample of bunded cropland areas taking into account the various soil types. If sufficient field data is
4 collected, then the computer model can be calibrated, and it will adequately s-Imulate the real irrigated system, thereby facilitating the equitable distribution of irrigation water supplies. The more field data collected, the better the internal work ings of the irrigation scheme will be understood. The field data will lead to some preliminary conclusions as to necessary improvements that would reduce water losses, thereby allowing more water to be available for crop production. The computer model can be effectively used to simulate potential irrigation scheme improvements in meeting crop water requirements anywhere in the irrigation system. For example, channel losses might be reduced in some high water loss reaches by placing compacted clay lining, soil-cement lining, plastic membrane lining, or concrete lining. In other cases, some modifying the rota tion schedules might reduce losses. Providing farmers with technical assistance to improve their water management practices might also be beneficial. In some cases, additional storage on the irrigated lands could lead to more beneficial use of the available water supplies. Then, a cost estimate should be prepared for each potential improvement. The two data sets (water savings and costs) can be combined to formulate options for improving the irrigation scheme that would achieve higher levels of water use. These options can be prioritized by ranking according to cost per unit of water or analyz ing cost-effectiveness to develop a "package" of technologies that oould cost the least to achieve whatever objectives were used in the analysis.
"ihe prioritized options should be documented and presented in an irrigation scheme improvements plan. The advantage of this docu ment is that justifying the options can be readily understood by government and donor officials. Therefore, these officials can easily decide the level of investment that they consider appropriate at that point in time. Thus, this document makes it easier to seek support and more likely to obtain funding for implementing some, or all, of the recommended improvements.
C. Maintenance
The first step in the maintenance process is to conduct a detailed field survey that lists all maintenance needs along each main canal, branch canal, and D-channel including F-channel inlet structures. the survey requires 2-3 individuals (e.g. irrigation engineer and technical assistant) walking along the irrigation channels, taking notes on each maintenance need (e.g., removal of sediment, repair of canal bank, repair of damaged structure, etc.). These notes must provide sufficient details for preparing a cost estimate for correcting each maintenance need.
5 A report should be prepared for each tank irrigation scheme that describes a maintenance plan or the life of this ISM Project. This report should include:
1. Essential structural improvements (ESI)
2. Costs of essential structural improvements
3. Inventory of required maintenance
4. Maintenance costs
5. Priority maintenance needs (PMN) and costs
6. Maintenance equipment requirements
7. Maintenance manpower requirements
8. Maintenance plan
a. Force account maintenance
b. Private contractor maintenance
c. Farmer organization contract maintenance
d. First-year priority maintenance work plan
e. Proposed work plans for second, third and fourth years
For each calendar (fiscal) year, a priority maintenance work plan would be forwarded to appropriate authorities for approval and funding. At the end of each year, the Irrigation Engineer for each tank irrigation scheme would prepare a maintenance completion report that lists each maintenance need that had been corrected and its actual cost. This procedure would continue through the life-of-the project.
Since funds will already have been expended for essential structural improvements (ESI), the remaining project funds allocated to maintenance will be used to correct Priority Maintenance Needs (PMN). The allocated project funds will not be sufficient to correct all maintenance needs, so the highest priority maintenance needs corrected first, then the next highest priority, etc. until all allo cated maintenance funds have been expended.
When the operations process has proceeded to the point where channel losses (including F-channels) are being measured, along with field evaluations of irrigation application efficiencies on cropped
6 bunded fields, then the maintenance plan should be refined. A revised maintenance plan should be prepared that includes a section on main tenance requirements for field channels, which would be undertaken by the farmers organizations with technical assistance provided by Irrigation Department personnel. As a minimum, the irrigation engineer, farmer representative for the particular F-channel being inspected, and the technical assistant responsible for delivering water to the F-channel should walk along the F-channel network and collectively prepare detailed notes on maintenance needs. At the same time, revisions in the previous maintenance plan can be made based on new information and experience gained during implementation. One of the more valuable insights that should have been gained by this time is the causes of the maintenance problems, rather than just the symptoms.
During the last year of this project, a preventive maintenance plan should be prepared that would be the basis for continued main tenance activities after termination of this ISM Project. This plan should discuss:
1. Physical causes of maintenance problems
2. Anticipated extent of maintenance problems
3. Maintenance equipment requirements
4. Maintenance manpower requirements
S. Maintenance requirements for farmers organizations
6. Estimated annual maintenance costs
7. Preventive maintenance plan
This document should be forwarded for appropriate review and approval.
7 ANNEX J: MONITORING, EVALUATION AND FEEDBACK SYSTEMS: TOOLS FOR IMPROVED PROJECT MANAGEMENT AND IRRIGATION SYSTEM MANAGEMENT
Alan C. Early*
.I. What is a Monitoring, Evaluation and Feedback System? Definitions
A system is defined to describe a connected whole, a scheme, a plan or a concurrence of parts. In the following, a monitoring# evaluation and feedback system is used in the sense of a management plan or component of a management approach. An irrigation system is viewed as a connected whole of irrigation storage, diversion conveyance, distribution, application, drainage and reuse. An irriga tion system is taken to be equivdlent to the term "irrigation scheme." An irrigation project is distinguished from an irrigation system or scheme by the involvement of perterbations and external resources in a project which are lacking in a scheme. A project thus is experiencing a transitory state while the system or scheme is assumed to occur under steady state conditions without the external inputs or funding.
The monitoring, evaluation and feedback system (MEFS) is a regularized lata gathering, assessment and reporting mechanism to support projec.- management. The information gathered must be care fully defined to be pertinent and necessary for project management and project performance evaluation. At the ministry level, a monitoring, evaluation and feedback function provides essential information to the managers in the ministry and departments on the effectiveness of broad programs. With information and analysis, these entities can answer for their performance to the central authorities, and with the appropriate use of feedback to the field, can make program adjustments to assure effective use of human and material resources. Important indicators to be monitored, evaluated and fed back to the Irrigation Systems Management Project are performance regarding the increases in food production, in rural employment, and in rural income.
*Associate Professor, International Irrigation Management, Agricultural and Chemical Engineering Department, Colorado State University, Fort Collins, Colorado 80523 U.S.A.
1I In the district, where the government departments are to work together in program implementation, managers and particularly the government agents need information for appropriate program guidance and implementation. The information needed at this level would be program performance indicators as established corresponding to the role of each of the ministry departments and other entities function ing in the program.
In the project, the information gathering, analysis and feed back required would be at levels appropriate for management by the project manager and the project management committee system estab lished by the implementation program. These information needs would be directly related to the physical infrastructure and the organiza tional development goals targeted for the various phases of program implementation.
In the irrigation scheme, the monitoring, evaluation and feedback system would directly deal with day-to-day, week-to-week and month-to-month matters of immediate concern for operation of the system each season to meet objectives; including, among others, efficiency, adequacy, reliability, equity, productivity, and long-term stability of the production system.
The essence of the introduction of a monitoring, evaluation and feedback system is to establish a set of tools to provide impor tant information to the manager such that he can better manage the project/system concerned. The MEFS is a necessary condition for good project/system management. The manager can choose to u'Ld or not use the information provided, and in a sense, he is the necessary and sufficient element for improved project/system management; assuming, of course, that he has the resources and personnel at his disposal to adjust to changing project/system circumstances.
The following sections will address the questions of identify ing the benefits, inputs required, important participants, information needs, procedures, outputs, and methods of development and refinement of a monitoring, evaluation and feedback system for implementation of improved project management and improved system management as focused on irrigation.
II. What are the Benefits of Monitoring, Evaluation and Feedbick System Implementation?
The benefits of monitoring, evaluation and feedback system implementation are many. The benefits include 1) systems that actually perform substantially the same as they were designed to perform, 2) increased management responsiveness to changes in system or project as problems are diagnosed and solved before excessive resources, time productivity and money are lost, 3) system and project managers who are able to manage and not just administer projects, and
2 .1 .1, 4) personnel who are directed to accomplish specific tasks that actually affect system performance and are in consonance with system and project objectives.
ImDroved System Performance
If the information is pertinent and properly used by the system manager, the beneficial outcome of introducing an MEFS is improved system/project performance. As a potential outcome this is the most important benefit of the MEFS implementation.
Increased Management Responsiveness
The MEFS implementation represents an early warning device to the manager indicating that problems exist in his/her system/project. The early detection of problems allows the focus of attention of managers and Implementation staff on solutions to bring the project/system back to a proper course. The increased responsiveness has the potential of achieving substantial savings of time and resour ces and to allow full project outcomes to reach reality.
System/Project Managers Rather Than Just Aministratrs
The MEFS implementation allows the central approaches of management to take effect and for managers to come to grips with system/project problems. Such a measure of control distinguishes managers who are active from administrators who are passive custodians of project/system leadership.
Effective System/Project Personnel
The implementation of an effective and efficient system of monitoring, evaluation and feedback provides significant opportunities for system/project personnel growth, reward and psychological benefits of goal achievement. If in the course of MEFS implementations the actual field personnel can be involved in annual program evaluation and planning through workshops and other devices, an increased iden tification with the work will enhance worker performance and project/system goal achievement. Substantial personnel contributions to the system/project can result from integration of their energies through these p.rticipatory management techniques.
III. What are the Requirements for Monitoring, Evaluation and Feedback System Impl ementation?
A system of monitoring, evaluation and feedback requires a careful design, trained personnel, operating funds, and a set of rewards and sanctions for good performance or non-performance accord ing to the established targets. For monitoring, evaluation and feed
3 back to be appropriate and effectively established and strictly adhered to:
- work must be carefully defined, have procedures elaborated and regularly scheduled;
- Job assignments and information channels must be clear and wel l-defined;
- training must be tied directly to the job description;
- performance evaluation must be based on well-defined and understood performance indicators;
- the timeliness of a regular reporting schedule emphasized and expected for product inputs; and
- the report must be truthful as a report provides opportunity for improvement.
These attributes as requirements for the implementation of the monitoring, evaluation and feedback system are discussed next.
Job Definitions
The definition of job content, quality, quantity and frequency are important to the MEFS implementation. All personnel must have carefully defined Job descriptions, must be made fully aware of those Job requirements, and must be appraised of rewards for proper fulfill ment and sanctions for poor performance of their job. Careful defini tion of the rglationships, information throughput, complimentarity, and timeliness of Job completion by members of the MEFS team. Only with team members fully aware of their duties and responsibilities can the MEFS hope to provide sufficient quality information for timely decision-making.
Workplan
The establishment of a routine for job performance is essen tial for smooth operation of the team. This is especially important to the irrigation management team where a weekly decision-adjustment period must be used to adapt to .hanging crop and land water require ments and changing meteorological conditions. Daily monitoring sum marized and evaluated weekly can then substantially influence opera tions for the subsequent time. For project management the nature of construction and organizational work mandate alternative routines and reporting periods.
4 Information Channels
The channels for information transfer must be carefully defined for effective utilization of the MEFS. The channels refer to the route through which the information passes as well as the medium used (verbal or written) and format. Standard formats should be specifically designed from the standpoint of manager's needs and the use to which information will ultimately be put. Each member of MEFS team should be certain of the routing of information for efficient MEFS operation.
Training Linkace to Job Descriptions
The earlier attribute of a carefully defined job description for each member of the MEFS team leads to a definition of behavioral training objectives. These behavioral training objectives would be worded in a form such as "at the completion of the training the client-trainee would be able to accomplish a specified set of tasks." Training accomplishing this type of objective can be an effective support to MEFS implementation.
Performance Evaluation
Job descriptions must be accomp. ,:d by appropriate evaluation to assure personnel that their efforts make a difference. Regular job performance evaluations must be conducted as an important written feedback to employees that reinforce positive rewards in promotion and financial renumeration for good behavior/performance and sanctions/dismissal for poor performance. Timeliness Rewarded
The importance of timely feedback in irrigation system manage ment is evident in the water supply adjustments that must be made to varying conditions of atmospheric demands, crop growth stages and rainfall. As a part of the management system, the quality factor of timeliness for MEFS must be held very strong. Behavior that enhances timeliness must be rewarded and failure sanctioned. Information Quality Uncompromised
The importance of good, reliable, truthful information cannot be understated. Only with good information can the manager make decisions and project/systems adjustments that will result in improved system/project performance. A poor report should not cast a bad reflection on any person, but should be addressed as an opportunity to make the project/system better fulfill its objectives and serve the client community. The service attitude is another remarkable require ment for the effective and efficient implementation of an appropriate MEFS.
5
'L, ' 'I IV. Who are the Key Actors in Monitoring, Evaluation and Feedback System Implementation?
The key actors in monitoring, evaluation and feedback are the management team members including the manager, the implementors, the monitoring staff, the evaluation staff and the communicators. The manager and his staff are shown in Figure J-1.
The mge is the person in whom is vested the decision making power and who has the executive function in the organization of being rf sponsible for results. His orders are directed to the implomJ-am i sff, who may deal with operationso maintenance, construction, or organizational functions, depending on the mandate of the system or project. The monitoring staff are the personnel who are taking measurements, interviewing and observing behavior as a par ticipant in the recipient or user community and recording all informa tion in a standard format. The e tion personnel are those system or project employees who receive the oata in row form, analyze, sum marize it, and compare it to performance stdndards and past perfor mance records to assess the meaning zf the current state of the system.
The communications staff are the specialized packagers and conveyors of information. This information must be in a established format for ease and rapid interpretation and use by the manager and for the implementation staff. This system must work like all the parts of a well-oiled mechanical device so that project/system manage ment can be fully effective.
In irrigation systems, th6 introduction of modern management methods that include a MEFS involve a number of personnel from the irrigation engineer down through the lowest field personnel who have daily contact with farmers. The monitoring, evaluation and communica tion personnel are likely to be the sub-engineering technical assis tants who are given specialized training in each of three specialized components of the MEFS. The monitoring personnel are fully mobile field observers and data recorders. The evaluation staff are data management and analysis personnel who are likely to be office dwellers. The communication personnel include technical assistants with specialized reporting skills and are also offic6 dwellers. In small schemes these three functions -- monitoring, evaluation and communications -- might of necessity be forced upon one or two individuals. The implementation staff includes technical assistants with operations and maintenance functions, as well as work supervisors and patrol laborers with similar specialized functions.
6 Figure 3-1. Key Actors and Information Flow in a Monitoring, Evaluation and Feedback System.
L Project/System Manager(s)
I Monitoring Staff Implementation Staff
I Evaluation Staff If Communication StafJ
V. What Information is Needed by Project Managers?
The project manager needs information of several types. These Include information about:
- resource availability and use by farmers - outputs from the farming system - stability of the system - human behavior and structural performance - accounting of expenditure and progress in project implementation
The program performance indicators would occur in the seven categories listed in Figure J-2.
7 /1 Figure J-2. Seasonal Program Performance Indicators Looked at by the Project Manager's Technical Staff
Equity: access to credit and othbr inputs yield distribution employment distribution income distribution
Productivity: area cropped cropping intensity yield
Efficiency: use of water and other inputs input conversion to outputs
Stability: water table, water logging, erosion
Human: farmer organizational performance, management performance personnel performance
Structural: structural failure, unravelling, erosion wash out
Accounting Expenditure: construction of structures and organizational work with farmers
These performance indicators have two dimensions and are useful for daily project management as well as for project evaluation, annually, at middle of the project, and at the end of the project. The full development of the performance indicators must be individually suited to the needs of each project. The framework is broad but the specifics are idiosyncratic to the requirements of each project situation.
VI. What Information is Needed by Irrigation System Managers?
The information needed by irrigation system managers is of four types. These include the disposition of flows, the status of crop (water stress and production), people (personnel and farmer) performance, and structural performance throughout the spacial ele ments of the system and duration of each management period.
The irrigation performance parameters are detailed in Table J-3.
8 Table 3-3. Irrigation Scheme Performance Parameters Collected Weekly by the Irrigation Scheme Staff.
Equty; : access to water over the space of the scheme and during the length of crop season.
Production: accumulation of stress days at selected points in the scheme and area cropped
E'f iciaag y.: water distribution in time and space, as ratio of water demands to water supply
StabJlijJy: floods, erosion, salinization, water logging, etc. HumLn InvlvementJ: interference behavior positive behavior by farmers and by system personnel
Co ntrol: convenience, effectiveness and responsiveness
These performance parameters have been shown useful in irrigation system management research in the Philippines and Thailand.
These six categories of performance parameters are relevant both from the standpoint of day-to-day management of the system as well as the regular, periodic evaluation of the system. These are broad categories of indicators. The specifics are an adaptation to the layout, problems, and practical matters of each irrigation system.
VII. What are the Procedures Used in a Monitoring, Evaluation and Feedback System for Project Implementation?
The procedures used in a monitoring, evaluation, and feedback System implementation as applied to improved project management are central to the entire management and decision-making process as depicted in Figure J-4.
9 Figure J-4. Functional Diagram for Monitoring, Evaluation and Feedback Integration into Project Management.
Situation Assessment and Problem Identification II
feedback
f f e e e Monitoring and e Solution Formulation Implementation d - Evaluation Testing and Refinement b b E a a c k kc
F Feedback J
Decision-Making D
The MEFS is designed to provide the project manager with important information for project implementation. The overall process linked by transfer through A, B, C, D represents the traditional management activities. The short loop through A, E, F is the focus of the management oriented MEFS wherein information is collected regularly and reported to the manager in useable form for quick deci sion and adjusted implementation.
Il major problems arise, the monitoring activities will most likely be adjusted to achieve a greater depth of probing and attempt to find reasons why the system is operating as it is.
For project management, as a part of a larger program activity, the monitoring, evaluation and feedback system will require logical organization that is established and implemented from the bottom. Starting at the field level of data collection, aggregation will be to the field-channel, distributary canal, branch canal, and main canal sub-systems. Subsequently, aggregation will logically
10 follow at the project level, district level, and ultimately at the department and ministry levels, as shown in Figure J-5.
An excellent opportunity for the establishment of an effective monitoring, evaluation and feedback element in the irrigation systems management program exists with the past short term and present longer term diagnostic analysis/baseline establishment efforts of Colorado State University accompli'-hed under the Water Management Synthesis Project. The diagnostic analysis workshop has had as its primary output the training of Sri Lankan nationals from a variety of dis ciplines and parent organizations in field problem identification, quantification and reporting skills. These skills are very much aligned with and useful to the establishment of a monitoring, evalua tion and feedback cadre envisaged under the Irrigation Systems Management Project and currently being trained by the Water Management Cell of the IMD.
VIII. What are the Procedures Used in Monitoring, Evaluation and Feedback System Implementation for Irrigation System Management?
At the irrigation system level monitoring, evaluation and feedback have central, and absolutely essential roles in the basic management of the irrigation system. The irrigation system is a complex combination of human, natural, and purchased resources designed to produce crops, employ people and provide incomes; and requires careful management to assure the effective use of these resources to achieve the desired level of outputs. Successful irriga tion system operational management can be conceptualized as the integration of the six elements shown in the flow chart in Figure J-6 which includes monitoring, evaluation and feedback with communication, measurement and control on a regular periodic time basis. The opera tions management system shown in Figure 3-5 has been successfully used in the large-scale irrigation projects in the Philippines and Thailand since 1977.
These MEF components are elaborated as follows:
(1) Inf.ormati.on dissemination is used to represent informa tion transferral which seasonally means holding a cultivation meeting developing a seasonal tiater issue plan, and disseminating that plan. Weekly, it involves the spread of information on adjustments in water issue in response to crop growth stage changes, rainfall occurrence and/or water availability to the scheme. Communication is used to keep all levels of management in the system working together, includ- Ing the farmer organizations and farmers as individual entrepreneurs.
(2) Measurement of Supply and Demand refers to the weekly delineation of crop and land water requirements, measurement of rain fall inputs that are usable in lieu of irrigation, and the area in
11 each part of the scheme under each crop and crop growth stage and on each soil type that require adjustment in the water requirement.
Figure J-5. Information, Collection, Analysis, Summary and Aggregati on.
SFa rms
Summary and Aggregation "A" Stage
Irrigation Scheme
C Summary and Aggregation "B" Stage
Pro
U
"- Summary - and Aggregation "C" Stage
:IDistrict,
1.-
Summary and Aggregation "D" Stage
rIDepa rtment/Mi ni s'try
12 Figure 3-6. Irrigation System Operational Management
EURES CONTENT
INFORMATION Targets/Plan Communicated DISSEMINATION Participation Enhancement
MEASUREMENT Irrigation Demands SUPPLY & DEMAND Rainfall Irrigation Supply
- I' o -_t_ 0w La) a3C CONTROL OF Target Discharges
WATER DELIVERY -U Gates Set to Targets Adjust Gates
MONITORING Target Achievement AND PERFORMANCE Stress Occurrence Partici pation Interference Behavior
EVALUATION * Performance Analysis AND PLANNING Workshop Review and Planning Consensus on Next Targets
(3) Control of Water Delivery is the step that involves the calculation of the appropriate target discharges at all bifurcation and off- take points throughout the scheme, and instruction of irriga tion staff and farmer representatives as to their adjusting or setting gates to control the specified deliveries of water throughout the scheme. Control is usually effected on some short-term period such as one week. In some cases, over periods as short as a day, control must be adjusted for actual rainfall.
13
/ (4) Monitoring of Performance involves the observation and quantification of actual irrigation deliveries throughout the scheme, observation of water application on a sample of farms, along with observation of crop water stress on the same sample and measurements of drainage flows as waste or as reuse downstream. Monitoring also includes observation of scheme personnel performance, farmer organiza tion performance, individual farmer irrigation behavior and farmer complaints and inputs to decision makers.
(5) Evaluation and Plannina includes the weekly assessment of how well the scheme operated relative to the weekly target discharges, the amount of crop water stress monitored on the sample of fields and the number of complaints r'eceived from the users of the scheme. Scasonally evaluation can take place in a workshop once simple opera tional analysis is completed. The workshop can review the past season as well as plan for the next season. Evaluation criteria -- each with a varying time for comparison -- include issues of: equity, production, efficiency, environmental stability, personnel performance, and structural performance.
(6) Feedback can be used weekly as well as seasonally. Feedback is used as a communication process to bring the information back to the manager's point of decision and to cause dissemination of the new plan or next cycle in implementation.
In managing of the irrigation scheme, it is suggested that weekly parameters be measured by the irrigation engineer and his staff of technical assistants, work supervisors and irrigators. This invol ves all factors that directly influence the scheme operations and that require a weekly report. The items with a longer time base such as seasonal frequency of observation should be supervised by a special staff attached to the Deputy Director of Irrigation composed of, at least an agricultural economist, an agronomist and a rural sociologist. This long-term data gathering would be accomplished by technical assistants trained by the Water Management Cell and attached to the project manager's staff. The emphasis in irrigation system management must be on accountability for results in terms of flow distribution crop water needs being satisfied positive farmer participation positive irriga tion personnel behavior, and structural performance of the system.
The procedures thus emphasize the positive control of the system by the manager. Only when positive control is placed in his hands can he be held responsible for results, as indicated by how well the system porforms or produces the planned and desirable results.
14 IX. What are the Outputs from Monitoring, Evaluation and Feedback System Implementation?
The outputs of the monitoring, evaluation and Feedback system will depend on the system or project involved and the cycle estab lished for decision-making. In irrigation system's management a very short cycle is involved, which is often chosen to be only a week, but under some circumstances may be as short as 4 to 5 days and as long &s ten days to a fortnight. This means that a report on the state of the irrigation system would be generated on this same frequency throughout the seasonal operation of the system. This system report would indi cate the state of the irrigation system with regard to flow distribution, crops experiencing stress, farmer attitudes and behavior, personnel performance, structural performance and, stability of the environment as described in earlier sections.
With r.gard to the project management, the MEFS reporting frequ icy is determined by the cycle shown in Figure J-4 and the frequency of information aggregation and summary shown in Figure J-5. The summary and aggregation frequency would depend on the level in the system. At stage A, the summary and aggregation would likely be quite frequent, because of the need to know construction progress, organiza tional effectiveness and farmer responses in input use, employment generated and income expendible for the farm family. At stage A the frequency would most likely be fortnightly to monthly for report preparation. At stage B, the reporting would be less frequent, per haps monthly to alternated-month reporting. At stage C, where the project manager reports to the district officials, reports may be from alternate months, such as pre-season, mid-,eason and post-seasonal reports to merely a seasonal report. The further aggregation of stage D to the central (departmental and ministerial) officials would likely be on a seasonal or semi-annual basis.
The urgency of reporting information that has management significance mandates the use of modern methods of data management, analysis and reporting. This is an area where the micro-computer can provide tremendous opportunities for making a difference in efficient reporting schedules for management implementation. Recent advances in software with the introduction of spread sheets, statistical packages and word processing have made remarkable new opportunities for managers to become real managers rather than mere administrators of projects and irrigation systems.
X. How is a Monitoring, Evaluation and Feedback System Developed and Refined?
In most cases in development projects Pnd even for operating systems, there is no existing blueprint for a monitoring evaluation and feedback system. Each project and each irrigation system is just enough different from every other so as to require a MEFS that is
15 specially adapted to the needs, goals, objectives, resources and manpower of that project. Such customizing of the MEFS is suggested through the process elaborated below.
MEFS development (and refinement) cycle is suggested in Figure J-7 to guide the program. The elements described are as follows:
1. Monitoring, evaluation and feedback needs and objectives defined: These needs and objectives are specific to the project and will change during the life of the project.
2. Systems and procedures established: This is the design of the system and elaboration of procedures to meet the needs and objectives defined above.
3. Systems and procedures computerized: Central to the concept of MEF is systematic data processing and reporting (using the micro-computer).
4. Personnel t,-ined and MEF Implemented: Field data collection personnel, and information systems personnel must be carefully trained for job skills needed.
5. Monthly, mid-season. seasonal and annual reports established: Regular reporting is the key for information to be useful in management and must be instituted at an early stage for the -a"tem to be effective In project management.
6. MEF performance evaluated: An annual assessment w' id appropriately allow the adjustment of the syster .Co the changing needs of the program. Upon completing the evaluation, the cycle and steps listed above would be repeated for refinement of the MEF system.
The development of a customized system is achieved in the first pass through the cycle. Subsequent iterations through the cycle would result in refinement of the system.
As in many other types of development endeavors into activities outside the normal range of experience, the development of a MEFS requires careful planning and contingency analysis. This type of effort requires thA expertise of a number of experienced practitioners, managers and persons with systems background in opera tions and data management. It is suggested that the design effort engage a number of thinkers with prior ,EF experience. Only with a conscious effort can the resulting MEFS be adapted to reflect the needs of a particular system/project and be simultaneously useful to the manager who ultimately is responsible for the results that the system produces.
16
/1., Figure J-7. Monitoring, Evaluation and Feedback System Development Cycle.
1. MEF Needs and objectives defined (refined)
6. MEF System Subjected 2. MEF Systems and to Annual Scrutiny and Procedures Established Eval uation (Recalculated) (Refined)
5. MEF Reporting Basis 3. MEF System Computerized Regularized (Refined) (Refined)
4. MEF Personnel Trained and System Implemented (Refinement)
17 ANNEX K: DAILY ACTIVITIES OF ISM PROJECT DESIGN TEAM
September 23, 1984---J. Brewer arrived 4 PM; talked with Herb Blank in evening; G. Skogerboe arrived at midnight.
September 24, 1984---Skogerboe & Brewer met with H. Blank in morning for briefing and to collect materials; Skogerboe and Brewer met with Larry Nelson and Joe Alwis to discuss Nelson's progress and other matters in afternoon and early evening; Skcgerboe met F. Correll and W. Schoux in morning; Brewer met with various people at ARTI
September 25, 1984---Brewer and Skogerboe met Director ARTI and later Deputy Director (IAR)/ARTI to discuss project and possible note of ARTI In morning; in afternoon, Brewer and Skogerboe met H. Blank and L. Purifoy of USAID; then attempted unsuccessfully to see N. Kumarasamy but instead talked with Tom Kajer (ECI).
McConnen arrived late that night.
September 26, 1984---Skogerboe, McConnen and Brewer met with T. Scudder and K. Wimaladhanna to discuss settlement schemes, particularly Minneriya and Mahaweli; 8-9 AM - Brewer met with ARTI persons (members of IAR division); 3--5 PM - Skogerboe, McConnen and Brewer met with Secretary (N. Abeywickrama)/LLD; Director of Water Resource Development (J. Alwis), Director of Irrigation (AJP Ponrojob), Director of IMD (KDP Perera), iputy ];rector IMP (R. Ratnayake), Marikkar (Director of Planning, MLLD), Premachandra (Addtl. Sec./LLD), and Herb Blank and L. Parifoy of USAID to discuss needs for project.
September 27, 1984---Skogerboe went with Herb Blank to Gal Oya; in morning McConnen talked with Leeann Ross, USAID economist; in morning Brewer wrote some notes on irrigation management responsibilities and agency structure in Sri Lanka; afternoon, McConnen and Brewer read sources; night - Bruce Brown arrived; lunch - McConnen and Brewer talked with Steve Tabor (USAID consultant) and Seraka Abeyratne (USAID).
I( Septenber 28, 1984---Morning - Brewer & Brown talked with KDP Perera, Ranjith Ratnayake, then later with N. Kumarasamg and Tom Kajer; McConnen talked with C. Uphaus of USAID; Brewer went to ARTI to recruit a trans lator and talk about Gal Oya; (talked with 0. Zolezzi).
September 29, 1984---Brewer, McConnen and Brown read background materials and discussed them at meals. Early arrived at night (1 AM)
September 30, 1984---Brewer, McConnen, Brown, and Early, together with Tilak Samaranayake and Sandy Shapleigh of USAID traveled from Colombo to Polonnaruwa. October 1, 1984----- The whole team, with Blank, Shapleigh, Samaranayake, met with DD Polonnaruwa (Lenton Wijesuriya), Mr. Weerakoon (Addth DD), IE Kalasigamini, and IE (PSS) Ivan de Silva from 8:30 AM to 11 AM. From then until lunch time, the team read and discussed various materials. At 2 PM, de Silva and Kulusigamini took the whole group on a tour of part of PSS - down D1 channel, then D1 East Branch Channel; down a couple of D & F channels. The team got to talk with farmers and others.
October 2, 1984------The whole team, including the 3 USAIDJ reps, went to Hingurakgoda. There we met with the IE - Mr. Nikathenna. After talking with him, he took us on a tour down channels and field; and talked with farmers and others. After lunch, Mr. Senaratna (the DA) took us on a tour of Giritale system, both the tail and middle of the system. In both places, we stopped to talk with farmers.
October 3, 1984------The team visited and interviewed the IE Kandulla (Mr. Karuwaratua) in the company of IE Mahendran from the DD's office. With the IEvs we toured the Kandulla scheme. In the evening, we dis cussed the approaches we want to take to the DD and to tomorrow's interview with the GA and other district officer.
October 4, 1984------The team met with Mr. Jayasinghe (GA, Polonnarruwa) L. Wijesuriya (DDI), Mr. Elkaduwa (AGA-Dev), Mr. Basnayake (ACAS), Stat 4stical Officer Gurapaky Gamini Bandara (DLO), Ivan de Silva (IE, PSS), Agricultural Officer Abeysinghe,
2 Economic Asst. (Depth of Ag.) Hulangamuwa In the morning to discuss the program. In the afternoon, Brewer delivered requests for informa tion to AGA Elkaduewer. Then, Early and Brown talked with I. do Silva and the DDI and delivered requests for information. The rest of the team read materials. In the evening, the team began discussing project components: specifically O&M.
October 5, 1985------In the morning, the team moved to Passekuchah. In the afternoon, the team began discussing the separate components and aspects of the project: a) water users associations, and b) O&M fe~s.
October 6, 1984------In the morning, the team discussed: a) O&M fees, b) financial management, c) O&M. In the afternoon, the team discussed: d) monitoring and evaluation. In the evening, the team discussed: e) research.
October 7, 1984------The team traveled from Passekudah to Gal Oya in the morning. In the afternoon, the team toured a portion of the Gal Oya Left Bank System to view the rehabilitation work on main, branch, and distributary channels. The team also took time to talk with Dr. C, Kariyawasan (Lecturer, Univ. of Moratuw,, and Cornell Consultant to ARTI), I. Ranasinghe 1ererra (Research Officer, ARTI), and S. Munasinghe (1O Supervisor) about the 10 and research programs of ARTI and the training programs of Moratuwa. In the evening, the three ECI consultants - Warren Leathen, Buryl Glasser, Godogredo Iglesia - came to dinner to discuss the project.
October 8, 1984----- In the morning, the team met with the DDI-Ampara: S. Senthinathan - later joined by W. Leathem and Godaliyadda (IE Ampara) to discuss the Water Management Project. After lunch with Leathem, the team visited the IE Ampara to see a demon stration of the new computer program, then talked for a short while with Leathem, befvre touring Gal Oya Right Bank with the DDI.
October 9, 1984------The team traveled from Inginiyagala to Colombo (Galle Face Hotel). In Digana, the team stopped to visit IIMI for a few minutes before continuing through Kandy. In Colombo, Skogerboe, McConnen, Early and Brewer visited Larry Nelson to tell him of our trip and make further arrangements. In
3 the evening, Skogerboe, McConnen, Brown and Brewer attended a reception given by IIMI and had a chance to talk with members of IIMI, various government officials, and others concerned with water management in Sri Lanka.
October 10, 1984-.Wednesday morning, the team talked about monitor ing with Larry Nelson, who has joined into sub sequent discussions as a team member. The team also discussed IIMI's role in the project. In the afternoon, the team discussed training. In the evening, the team, with Ned Greeley of AID/W - met with Tom Wickham and Senen Miranda of IIMI to get their ideas about possible roles for IIMI.
October 11, 1984---- In the morning, the team discussed the organiza tion and administration of project activities with Herb Blank. In the afternoon, the team met with Joe Alwis to discuss his views on the same subject, in particular on relations between ID and IMD.
October 12, 1984-.In the morning, the team talked over the general strategy of the project - including selection of sites for purposes outlined in the PID. In the afternoon, the team discussed writing assignments and organization of the report.
October 13, 1984---- Design Team began writing of the Technical Analysis for the presentation to USAID scheduled for October 10, except for Brewer who traveled with Edward Greeley (USAID/W) to the Gal Oya Irrigation Project.
October 14, 1984-----Design Team continued writing of Technical Analysis. Skogerboe met with Mr. Ponrajah, Director, Irrigation Dept., and Brewer attern led the Farmers Convention at Amparal. October 15, 1984-----Design Team continued writing of Technical Analysis. Skogerboe met with Mr. Herb Blank, USAID. Brewer traveled from Gal Oya to Maduru Oya and a tended USAID/GSL dedication ceremony for Mahaweli System B, then traveled to Polonnaruwa to obtain project data.
October 16, 1984 -----Design Team continued preparation for USAID presentation schedulrd for October 18. Brewer traveled fror Polonnnruwa to Colombo early in morning. Early, Brewer and Skogerboe met with
4 Prof. Tennekoon, Dr. Wichramagahiya and Dr. Kanyawawam, Faculty of Civil Engineering, University of Moratuwa. 10-12 on training and research activities for ISM Project. Early, Brown, Skogerboe and Herb Blank mat with Mr. Kurusamy, Proj. Dir., Water Mgmt. Proj., Irri. Dept., on cost estimates for upgrading the four tanks in the Polonnaruwa District 2:30-4:30.
October 17, 1984-.Early and Skogerboe traveled with Harb Blank, USAID and Warren Leatham, PRC/ECI to the Galgamuwa Irrigation Training Institute (GITI) 0530-190. McConnen and Brown met with Mr. Thilak Samaranayake and Mr. Senaka Abeyratne, economists with USAID, on the Economic Analysis for our final report.
October 18, 1984---- Finalized preparations for USAID presentation, which was given 10:30-12:30. Skogerboe met with Herb Blank, Joe Alwis and Warren Leatham. Team meeting 15:30-18:30.
October 19, 1984-.Meeting with Dr. Willie Joshua* Director, Land Use Division, Irrigation De.pt. on Soil Surveys and an earlier USAID-funded On-Farm Water Management Research Project from 10:00-12:00. Meeting from 14:00-15:30 with personnel in the Water Management Directorate, Mahaweli Development Authority.
October 20, 1984-----Completed second draft of Technical Analysis and began revisions for review copy.
October 21, 1984-----Continued revisions of Technical Analysis. Team meeting from 19:30-21:00.
October 22, 1984---- Brown, McConnen and Skogerboe met with Mr. Edward K. Hawkins, Resident Representative, The World Bank on the Major Irrigation Rehabilitation Project. Brewer and Early met with the Sri Lanka Institute for Development Administration. Team meeting with Mr. K.C.P. Perera, Director, Irrigation Management Division, MLLD. Brown and Early met with National Institute for Business Management.
October 23, 1984---- Team meeting from 8-10 AM on MLLD presentation scheduled for October 24. Skogerboe met with Mr. Mike Korin, USAID/ARD. Brewer, Early and
5
) Skogerboe met with Agrarian Research and Training Institute in the afternoon.
October 24, 1984--- Final preparation of materials for MLLD presentation, which occurred from 1130-1330. Brewer and Early, along with Larry Nelson, traveled to Kandy in the afternoon.
October 25, 1984--- Brown, McConnen and Skogerboe worked on writing assignments. Brewer, Early and Nelson met with Dr. T. Jogaratron, Director of Post Graduate Institute of Agriculture, to discuss possible support for PGIA; met with Mr. Kapila Gunesekera of Dept. of Ag. Engineering, Fac. of Ag., about his research at Kaudalla; met with Dr. Sarath Ilangetilleke, Head, Dept. of Ag. Engr. and Mr. Kapila Guuesekera, about possible involvement of the faculty and students in ISM; met with Mr. Krishnarajah of Land and Water Use Division, Dept. of Ag. to discuss their training and research programs; met with Dr. Suraweera, Ag. Econ. Div., Dept. of Ag. and Director of DARP, about same thing; met with Dr. Rex Clements concerning his possible involvement in the Water Management Cell activities; and in the evening, met with Dr. Leslie Small of IIMI to discuss their program.
October 26, 1984---- Brewer and Early met with Drs. Amaratunga, Head of Civil Engineering, Keerthisera, Amirthanathan, Galappatti and Ranaweera, of the Civil Engineering Dept. and Dr. Gunenaroana of the Electrical Engineering Dept. concerning their possible participation in ISM activities. Larry Nelson met with Dr. Clements and others in the Dept. of Crop Science to continue discussions begun on October 25. Brewer, Early and Nelson traveled from Kandy to Colombo, arriving at 1400. McConnen and Skogerboe met with Mr. Nikapitiya, DDI, Dandy on 1973-74 channel loss studies at Maharanadarawa Tank Irrigation Schemes. Team meeting with USAID Project Team on issues involved in ISM Project.
October 27, 1984---- Team meeting from 0800-1100 on staffing details for ISM. Everyone worked on writing assignments,
October 28, 1984---- Team worked on writing assignments. McConnen departed Sri Lanka at 2000 on Air Lankan 452. Early and Skogerboe met with Mr. Oscar Zelozzi,
6 Cornell University graduate student in Agricultural Engineering on his research at Gal Oya,
October 29, 1984---- Brewer met with Mr. Ranjith Ratnayake, IMD, about possible tank sites for low intensity improvements. Brewer and Early met with the Director of the Project for Advancing Scheme Experience (PASE). Brown and Skogerboe worked on writing assignments. October 30, 1984---- Brown and Skogerboe met with Mr. Kumarasamy, Senior Deputy Director (Water Mgt.), ID,on staffing details for project from 0900-1130. Balance of time was spent by team on writing assignments.
October 31, 1984---- Early and Skogerboe met with Mr. Kumarasamy and Mr. Senthinathan, DDI Amparai, on staffing and equipment for project from 1100-1430. Team met with representatives of the Dept.of Agr., Land and Water Use Div., Kandy from 1500-1630. November 1, 1984--..All team members worked on the draft report. November 2, 1984----All team members worked on the draft report.
November 3, 1984--- All team members worked on the draft report. November 4, 1984---- All team members worked on the draft report. Early attended the opening ceremony for the First International Symposium on Micro-Computer Applications in Developing Countries at Mount Lavinia, Sri Lanka. Brown departed Sri Lanka at 2000 on Air Lanka Flight 452. November 5, 1984---- Skogerboe worked on completion of draft report. Early and Brewer, accompanied by Anne Dammarell-USAID, traveled from Colombo to Kurunegala and met with the DDI, Mr. Theragure and Mr. Herathge, IE about making arrangements to look at Ridi Bendi Ela and Hakwatuna Oya Schemes. In the afternoon, the team spoke with the DDI, Polannaruwa, Mr. L. Wijesuriya, about equipment maintenance facilities.
November 6, 1984--.---Skogerboe met with Mr. Joe Alwis and Mr. Ranjith Ratanayakek IMD, 1130-1230 to provide draft report with discussion. Later, $kogerboe met with Mr. Ranatunga, IMD, O&M to request his
7
/ review of the draft report. Skogerboe later met with Mr. Kumarasamy, Dr. DD, ID, from 1630-1800 to discuss the draft report. Early and Brewer traveled in the morning to Nikaweratiya to meet with Mr. Herathge and Mr. Plyadasa, TA in ;-harge of the Ridi Bendi Ela Scheme. A short tour of the scheme followed. In the afternoon, Early and Brewer met with Mr. Abeyrathe, IE Hirlyala, about the Hakwatuna Oya Scheme, then toured the schemie with the IE and Mr. Wijesinghe, TA in charge of the scheme. November 9 8 7, 1 4----- Brewer and Early visited Maha Illupalama Research Station and Trainirg Facility, and met with Mr. Henry Gamage, ADA 1n charge of the in-service Training Facility and with Mr. Jinasena Fernando, Deputy Director of Agriculture in charge of the Research Station. The team also met with Mr. Somapala, ":rainer, and Research Officers, Mr. Nagakakorale and Mr. Kirthi Sekera to discuss training programs and research in water management. Skogerboe continued revisions on draft report.
November 8, 1984---- Team preparations for draft report presentation to Mission Director and review by USAID project Ctte., which was held from 1430-1630. November 9, 1984---- Early attendod Summary and Synthesis session on "Agricultural Appl ications of Mi rco-Computers", then met with the Vice Chancellor, Dr. Willie Mendy and toured Computer C.snter and Civil Engineering complex at the University of Moratuwa. Brewer and Skogerboe met with Ms. Christina Schoux, USAID, on draft report comments 0830-1000. Skogerboe met with USAID economist, Mr. Thilak, in afternoon regarding his comments on the draft report. Draft report comments were also obtained from Dr. Herb Blank. November 198 10, 4----Brewer, Early and Skogerboe spent entire day on revising ISM Project Design Report.
November 11, 1984----Team spent entire day on report revisions.
November 12, 1984 ---- Team spent morning on report revisions. Afternoon presentation from 1500-1630 with Secretary, MLLD, Director of ID and IMD. Proj. Dir., WMP and other staff on draft report.
8
N November 13, 1984---- Early departed on Swiss Air Flight at 1050. Brewer and Skogerboe continued report revisions. Some final report sections were duplicated.
November 14, 1984----Brewer and Skogerboe continued with final report revisions. More sections were duplicated.
Novrxnber 15, 1984----Brewer departed Colombo on PIA at 1500. Skogerboe continued with final report revisions. Report was completed at 1745.
November 16, 1984---- Obtained 5 copies of unbound report at 0830. Meeting with Mr. Ponrajah, D.I., Mr. Kumarasainy, WMP Proj. Dir. and Dr. Herb Blank 0930-1115 regarding final repcrt. Obtained 25 bound copies of final report, which were given to Dr. Blank, USA ID/Col ombo.
November 17, 1984----Skogerboe departed Colombo on Flight UTA568 at 10:50.
9 ('. Annex L: DETERMINING 7HE IMPt, - OF ALTERNATIVE INCENTIVES ON O&M AND WATER USE
A. INTRODUCTION
The purpose of thls annex is to present a series of ideas on various types of incentivis that could be used to increase farmer participation in various types of activities to increase the likelihood that irrigation schemes 4lll successfully achieve the objectives of increased farner incomes and increased food production. Not all types of incentives can be used in any one situation, and the use of some types of incentives will preclude the use of other types of incentives.
This presentation of ideas on various types of incentives is done in the hope that field tests of at least some of these ideas can be made. The field tests need to be structured carefully so that the empirical results can be used to begin building a knowledge base to complement existing theories and ideas about how to increase effective farmer participation in design, operation and maintenance of irriga tion schemes. The purpose of such participation is not an end in itself, but rather a means of promoting irrigation systems (composed of the interacting sub-systems of farmers, irrigation and agricultural institutions, and the physical irrigation scheme), which are capable of both sustained renewal and the adoption of increasingly productive farming systems. Many of the ideas suggested here have already been considered by Sri Lankan authorities. The incentives discussed in this annex stress two types of activities: (1) the payment of O&M fees by farmers, as well as the farmer participation in productive O&M activities; and (2) the effective use of water.
B. INCENTIVES FOR PAYMENT OF O&M FEES AND FARMER INVOLVEMENT IN O&M ACTIVITIES
(1) Relate scheduling O&M fee increases to farmer perception of benefits received. Many Sri Lankan farmers have expressed a will ingness to pay the currently proposed Rs. 100 per acre O&M fees if they can see some benefit in the form of a more effective irrigation scheme. Therefore, it is important to test methods of generating appropriate perception by farmers and making certain that such O&M fees are, in fact, spent in ways that generate perceptible benefits to the farmers involved.
One way to do this would be to provide a full accounting to farmers' organizations about how O&M fees were used and how that use will benefit them. Scheduled increases in O&M fees would not take place until it is clear that farmers perceive how the payment of O&M fees will benefit them. If scheduled O&M fee increases take place before such a perception exists, it is likely that farmer participa tion in the payment of OM fees will decrease. On the other hand, if scheduling is delayed until farmers perceive the benefit to them of paying the O&M fees, and this practice is paired with some of the ideas presented below, it should be possible to bring about high levels of voluntary payment of O&M fees.
(2) Alternative forms of paying O&M fees. In almost every irrigation scheme, there are farmers - particularly some farmers located at the tail of the scheme - who earn very low family incomes. They may find it difficult, and perhaps impossible, to pay O&M fees in cash. If using cash is the only way fees can be paid, two undesirable things are likely to happen. First, a significant portion of the farmers on an irrigation scheme are likely to develop a history of non-participation. Second, the existence of a significant number of farmers who do not pay O&M fees because they can't pay them in cash will encourage other farmers who can afford to pay to become "free riders." That is, they will not pay, but will attempt to participate in the benefits of a more effective irrigation scheme brought into being by better O&M.
Studies of alternative systems of paying fees could establish important information about the relationships between forms of payment and farmer participation in the payment of fees. One alternative would be to make provisions so t'at the payment by farmers of their OM fees can be In the form of cther cash or labor contributions. Contributed labor should be valued somewhat below tee current market value of labor and employed on specified tasks performed under ade quate supervision. Contributed labor is often more difficult to use effectively than a cash payment and should be valued so that it provides an alternative mears of paying O&M fees. It should not be valued so that there is an incentive for most farmers to substitute contributed labor for the cash payment of O&M fees.
(3) alJvrof cash O&M fees in areas without effective delivery of irrigation water. O&M fees collections are based on the assumption that such fees are needed to continue the effective delivery of adequate irrigation water. In areas where the effective delivery of irrigation water is not presently possible, farmers are probably not willing and i.,y not be capable of paying cash O&M fees. Where adequate service is not provided, and where the possibility of providing such service exists, emphasis could be placed on paying O&M fees with contributed labor, and such labor should be used to make improvements in the irrigation system which will result in more effec tive delivery of irrigation water. Such action may requir additional funding. Once the effectiveness of the irrigation system has been improved, the standard procedures for collecting O&M fees can be impl emented.
2 (4) Allocation of O&M fee collections to field and dis tributary canals. The perception that farmers ha.e about the direct benefits to them will have a significant impact or, their willingness to pay O&M fees. Over a long time, such perceptions will be based on (1) the existence if actual improvements that directly benefit the farmers, (2) the farmers' understanding of why such improvements are beneficial, and (3) the ability of the farmers to iunderstand the linkage between the payment of O&M fees and the improvement.
It is important to empirically test the hypothesis that these three assumptions are correct. A field test of the explicit implemen tation of activities based on these three assumptions could involve: (1) expending the O&M fees for improvement at the distributary and field canal levels, along with needed management schemes including involvement of tLie farmers' organizations; (2) involving farmers' organizations in the problem identification and preliminary design phase and a eemonstration and education program which will help farmers under.;tand the purpose of the improvements; and developing an accounting system for the collection and disbursement of fees that will be used to help farmr.rs understand the role that their payment of O&M fees played In bringing such 'mprovements into being.
(5) Payment of O&M fees and property rights. A significant amount of irrigated land on some schpmes is the result of encroachment. Encroachment has probably been a very economical way to expand irrigated area in Sri Lanka and the apparent decision of the Government of Sri Lanka to provide irrigation water for such land appears to be realistic and consistent with the objective of increas ing food production and farmer incomes. Farmers are more likely to pay O&M fees, particularly those using encroached land, if they per ceive a connection between payment of fees and an increased assurance that the farmer will be able to continue farming the land and have a reliable source of irrigation water. In any sense, this involves a linkage between paying O&M fees and a type of property rights for both land and water. A field test could be run to determine the relation ship between the willingness to pay O&M fees and the existence of various institutional arrangements which improve the land and water property rights of farmers. Such improvements in property rights could range from a fee simple type property right after a period of paying O&M fees to a yearly contract to provide a specific level of irrigation services once O&M fees have been paid.
C. MODIFYING O&M FEES AS AN INCENTIVE FOR THE EFFECTIVE USE OF IRRIGATION WATER
O& fees are assessed on an acreage basis and as such repre sent a type of land tax. Since an operational pricing system for water requires volumetric measurement of water used, it is usually not feasible to impleme.-t a water pricing program when many small farmers and many small fields are involved.
3 An alternative would be to modify O&M fees assessed on an area (say the hydrologic unit represented by a farmer organization). It would be required that a volumetric measurement be made of water used by a hydrologic unit; for example, the unit may be the land (perhaps 20 hectares) served by a field channel. The O&M fee charged per acre for this field channel could then be based on the functional relation ship indicated in the graph below.
O&M fee/acre O&M = f 'Iw
Rs. 100
1.3 1.2 1.1 1.00 .9 .8 .7 .6
Index of water use
where the index of water use is:
I = (Current water use/acre wu(base water use/acre)
The base water use could be based on either the actual water use established during a base period or a normative value based on some standard adjusted for type of crop, soil type and season. Such a system would provide individual farmers with a modified price signal which would provide an incentive to use water effectively. The stronger the farmer organization, the more effective such incentives will be.
4 /